Appendix B: Mitigation Strategies
The following items illustrate many of the broad mitigation strategies that communities,
tribes, counties, and other entities can implement to help protect lives, property and the
environment in their jurisdictions. The following grid lists the six basic mitigation
categories outlined by FEMA (introduced in Chapter 2), the strategies that fall in those
categories, and the hazards those strategies may be effective for.
Many of the strategies, while listed under one category, may have elements that include
other categories as well. For example, almost all strategies have a Public Information &
Education component, where homeowners and business owners are educated about
possible measures they may take on their own.
Category
Public
Information
&
Education
Preventive
Measures
Mitigation Strategy
Hazards Impacted
B.1.1
B.1.2
B.1.3
B.1.4
B.1.5
B.1.6
B.1.7
B.1.8
B.1.9
Public Information Program Strategy
Educational Programs
Outreach Projects
Technical Assistance
Map Information
Library
Websites
Real Estate Disclosure
FireWise
B.1.10
Business Continuity Planning &
Mitigation
All Hazards
All Hazards
All Hazards
All Hazards
All Hazards
All Hazards
All Hazards
Flood, Expansive Soils
Wildfire
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Heat, Urban Fire, Wildfire,
Earthquake, Hazardous Material, Dam
Break, Transportation
B.2.1
B.2.2
B.2.3
B.2.4
Planning
Zoning
Floodplain Development Regulations
Stormwater Management
B.2.5
Building Codes
B.2.6
IBHS Fortified Home Program
B.2.7
B.2.8
B.2.9
B.2.10
B.2.11
B.2.12
Smoke Detectors
Hurricane Fasteners
Mobile Home Tie-Downs
Lightning Warning Systems
Power Outages from Winter Storms
Standby Electric Generators
B.2.13
Critical Facility Protection
All Hazards
All Hazards
Flood, Dam Break
Flood, Dam Break
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Expansive Soil, Urban Fire,
Wildfire, Earthquake
Flood, Tornado, High Wind, Lightning, Hail,
Urban Fire, Wildfire, Earthquake
Urban Fire
Tornado, High Wind, Earthquake
Tornado, High Wind
Lightning
Winter Storm, Lightning
Tornado, High Wind, Lightning, Winter Storm
All Hazards
B.2.14
Extreme Heat Protection
Extreme Heat
B.2.15
Proper Storage & Disposal of
Hazardous Materials
Hazardous Material
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Category
Structural
Projects
Property
Protection
Emergency
Services
Mitigation Strategy
Hazards Impacted
B.2.16
Water Conservation
Drought
B.2.17
Open Space Preservation
Flood, Drought, Dam Break
B.3.1
Safe Rooms
Tornado, High Wind
B.3.2
School Safe Rooms
Tornado, High Wind
B.3.3
Reservoirs &Detention
Flood
B.3.4
Levees & Floodwalls
Flood, Dam Break
B.3.5
Channel Improvements
Flood, Dam Break
B.3.6
Crossings & Roadways
Flood, Dam Break
B.3.7
Drainage & Storm Sewer
Improvements
Flood, Dam Break
B.3.8
Drainage System Maintenance
Flood, Dam Break
B.4.1
The City’s Role
All Hazards
B.4.2
Insurance
B.4.3
Acquisition & Relocation
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Urban Fire, Wildfire,
Earthquake, Dam Break, Transportation
Flood
B.4.4
Building Elevation
Flood, Dam Break
B.4.5
Barriers
Flood, Dam Break
B.4.6
Retrofitting
B.4.7
Impact Resistant Windows & Doors
Flood, Tornado, High Wind, Lightning, Hail,
Expansive Soil, Wildfire, Earthquake
Tornado, High Wind, Hail
B.4.8
Lightning Protection Systems
Lightning
B.4.9
B.4.10
Surge and Spike Protection
Lightning
Landscaping for Wildfire Prevention
Wildfire
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Heat, Drought, Urban Fire,
Wildfire, Earthquake, Hazardous Material,
Dam Break, Transportation
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Heat, Drought, Urban Fire,
Wildfire, Earthquake, Hazardous Material,
Dam Break, Transportation
All Hazards
B.5.1
Threat Recognition
B.5.2
Warning
B.5.3
9-1-1 & 2-1-1
B.5.4
Emergency Telephone Notification
Systems (ETNS)
B.5.5
Response
B.5.6
Emergency Operations Plan (EOP)
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Flood, Winter Storm, Heat, Urban Fire,
Wildfire, Hazardous Material
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Heat, Drought, Urban Fire,
Wildfire, Earthquake, Hazardous Material,
Dam Break, Transportation
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Urban Fire, Wildfire,
Earthquake, Hazardous Material, Dam
Break, Transportation
Holdenville Multi-Hazard Mitigation Plan
Category
Natural
Resource
Protection
Mitigation Strategy
Hazards Impacted
B.5.7
Incident Command System (ICS)
B.5.8
Mutual Aid / Interagency Agreements
B.5.9
CERT (Community Emergency
Response Teams)
B.5.10
Debris Management
B.5.11
Critical Facilities Protection
B.5.12
Site Emergency Plans
B.5.13
Post-Disaster Recovery & Mitigation
B.5.14
StormReady Communities
B.6.1
B.6.2
B.6.3
B.6.4
Wetland Protection
Erosion and Sedimentation Control
River Restoration
Best Management Practices
B.6.5
Dumping Regulations
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Urban Fire, Wildfire,
Earthquake, Hazardous Material, Dam
Break, Transportation
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Urban Fire, Wildfire,
Earthquake, Hazardous Material, Dam
Break, Transportation
Flood, Tornado, High Wind, Winter Storm,
Heat, Urban Fire, Wildfire, Earthquake,
Hazardous Material, Dam Break,
Transportation
Flood, Tornado, High Wind, Winter Storm,
Wildfire, Earthquake
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Urban Fire, Wildfire,
Earthquake, Hazardous Material, Dam
Break, Transportation
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Urban Fire, Wildfire,
Earthquake, Hazardous Material, Dam
Break, Transportation
Flood, Tornado, High Wind, Lightning, Hail,
Winter Storm, Urban Fire, Wildfire,
Earthquake, Hazardous Material, Dam
Break, Transportation
Flood, Tornado, High Wind, Hail, Winter
Storm
Flood, Wildfire
Flood, Wildfire
Flood, Wildfire, Hazardous Material
Flood, Hazardous Material
Flood, Tornado, High Winds, Winter Storm,
Hazardous Material
B.1 Public Information and Education
A successful public information and education program involves both the public and
private sectors. Public information and education activities advise and educate citizens,
property owners, renters, businesses, and local officials about hazards and ways to protect
people and property from them. Public information activities are among the least
expensive mitigation measures, and at the same time are often the most effective thing a
community can do to save lives and property. All mitigation activities – preventive,
structural, property protection, emergency services, and natural resource protection –
begin with public information and education.
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B.1.1
Public Information Program Strategy
Getting Your Message Out
Professional advertising agencies may be willing to help get the message out regarding
disaster preparedness and mitigation at little or no cost. They have a vested interest in
their community and want to keep it safe. The same holds true for the media. The local
newspaper, radio or television will contribute to keeping a safe and prepared community.
Invite them to, and let them participate in special events, meetings, practice exercises, etc.
Education alliance partners, such as a restaurants, convenience stores or the library, can
put preparedness tips on tray liners or sacks, distribute brochures or allow you to erect a
display with disaster information of local interest.
Many other options are available such as including brochures with utility bills,
presentations at local gatherings, billboards, direct mailing and websites.
General
Numerous publications on tornadoes, thunderstorms, lightning, winter storms and
flooding are available through NOAA. Up to 300 copies of most publications can be
ordered from your local National Weather Service, NOAA Outreach Unit or American
Red Cross. Many of the brochures can be downloaded from
http://www.nws.noaa.gov/om/brochures.shtml.
For a nominal fee the American Red Cross offers videos on general preparedness, winter
storms, chemical emergencies, hurricanes and earthquakes.
The National Weather Service issues
watches and warnings for tornadoes,
severe thunderstorms, floods, winter
storms and extreme heat that may
include “Call to Action” statements.
The messages appear on the NWS
telephone line, the local weather
service office website and on
television stations carrying
Emergency Alert System messages.
Communities can encourage
residents to prepare themselves by
Summer camps, and other educational programs
for children, can teach a new generation about
stocking up with necessary items and
nature, natural hazards, and preservation
planning for how family members
should respond if any of a number of possible emergency or disaster events strike.
Hazard Brochures
Area agencies or the American Red Cross have available the book Repairing Your
Flooded Home and fliers Are You Ready for a Flood? and Avoiding Flood Damage. For a
summary of what to do after a disaster see
www.redcross.org/services/disaster/0,1082,0_502_,00.html. The brochure Taking Shelter
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From the Storm: Building a Safe Room Inside Your Home is available from FEMA. A
copy of the brochure can be requested from the FEMA website
http://www.fema.gov/fima/tsfs02.shtm. Are You Ready for a Tornado? is available from
the American Red Cross, FEMA and the National Oceanic and Atmospheric
Administration. Area agencies or the American Red Cross have available the fliers Are
You Ready For a Heat Wave? Are You Ready For a Winter Storm? and Are You Ready
For a Thunderstorm?
After reviewing the possible and locally implemented public information activities
covered in the previous sections, the Public Information Outreach Strategy Team
prepared a Public Information Program Strategy. Following the Community Rating
System format, the strategy consists of the following parts:
a. The local hazards, discussed in Chapter 4 of this plan
b. The safety and property protection measures appropriate for the hazards,
discussed in Chapter 5 and this Appendix.
c. Hazard-related public information activities currently being implemented in the
community, including those by non-government agencies (discussed in Chapter 2)
d. Goals and Objectives for the community’s public information program (covered
in Chapter 5)
e. Outreach projects that will reach the goals (see Chapter 6, Action Items and Table
6-1.)
f. A process for monitoring and evaluating the projects (see Chapter 7)
B.1.2
Educational Programs
A community’s most
important natural
resource is its children.
They will inherit the
resources, infrastructure
and development built
by earlier generations at
great cost and effort.
They will also face the
same natural forces that
bring floods, tornadoes,
storms and other
hazards.
Environmental
education programs can
teach children about natural hazards, the forces that cause them, and the importance of
protecting people, property and nature, such as watersheds and floodplains. Educational
programs can be undertaken by schools, park and recreation departments, conservation
associations, and youth organizations, such as the Boy Scouts, Campfire Girls and
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summer camps. An activity can be complex enough as to require course curriculum
development, or as simple as an explanatory sign near a river.
Educational programs designed for children often reach adults as well. Parents often learn
innovative concepts or new ideas from their children. If a child comes home from school
with an assignment in water quality monitoring, the parents will normally become
interested in finding out about it as well.
There are many programs that provide information and curriculum materials on nature
and natural hazards. On FEMA website http://www.fema.gov/kids/ kids can learn about
having a family disaster plan, what kids might feel in and following a disaster, what the
different disasters are, what to do during a disaster, take quizzes and play games. There is
also information on how to get a free video, brochures and other fun stuff.
Another site, for students and educators on water resources, is the USGS “Water Science
for Schools” http://wwwga.usgs.gov/edu/. The American Red Cross has a 24-page
Disaster Preparedness Coloring Book for kids age 3-10. The coloring book is available
online and can be printed from http://www.redcross.org/pubs/dspubs/genprep.html.
Youth programs and activities often include posters, coloring books, games, and
references. Hands-on models that allow students to see the effects of different land use
practices are also available through local natural resources conservation districts.
B.1.3
Outreach Projects
Mapping and library activities are not of much use if no one knows they exist. An
outreach project can remedy this. Sending notices to property owners can help introduce
the idea of property protection and identify sources of assistance.
Outreach projects are the first step in the process of orienting property owners to property
protection and assisting them in designing and implementing a project. They are designed
to encourage people to seek out more information in order to take steps to protect
themselves and their properties.
The most effective types of outreach projects are mailed or otherwise distributed to floodprone property owners or to everyone in the community. Other approaches include the
following:
 Articles and special sections in newspapers
 Radio and TV news releases and interview shows
 Hazard protection video for cable TV programs or to loan to organizations
 Presentations at meetings of neighborhood, civic or business groups
 Displays in public buildings or shopping malls
 Floodproofing open houses
Research has proven that outreach projects work. However, awareness of the hazard is
not enough. People need to be told what they can do about the hazard, so projects should
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include information on safety, health, and property protection measures. Research has
also shown that a properly run local information program is more effective than national
advertising or publicity campaigns.
B.1.4
Technical Assistance
While general information helps, most property owners do not feel ready to take major
steps, like retrofitting their buildings, without help or guidance. Local building
department staff members are experts in construction. They can provide free advice, not
necessarily to design a protection measure, but to steer the owner onto the right track.
Building, public works, and engineering staff members visit properties and offer
suggestions. Most can recommend or identify qualified or licensed companies, an activity
that is especially appreciated by owners who are unsure of the project or the contractor.
Technical assistance can be provided in one-on-one sessions with property owners or can
be provided through seminars. For instance, seminars or “open houses” can be provided
on retrofitting structures, selecting qualified contractors, and carrying out preparedness
activities.
B.1.5
Map Information
Many benefits stem from providing map information to inquirers. Residents and
businesses that are aware of the potential hazards can take steps to avoid problems and
reduce their exposure to flooding, dam failure or releases, expansive soils, hazardous
materials events, and other hazards that have a geographical distribution. Real estate
agents and house hunters can find out if a property is flood-prone and whether flood
insurance may be required.
Maps provide a wealth of information about past and potential hazards. Geographic
Information Systems, sometimes called smart maps, provide efficiency and add to
capabilities of many government services. County assessors, public works, parks and
recreation, and 911 services are all typical departments capable of applying GIS
applications to improve their services. GIS allows trained users to complete
comprehensive queries, extract statistical information, and completely manage all
relevant spatial information and the associated attribute information that pertain to those
departments.
Flood maps
Several legal requirements are tied to FEMA’s Flood Insurance Rate Maps (FIRMs) and
Flood Insurance Study Maps. These include building regulations and the mandatory
purchase of flood insurance. FEMA provides floodplain and FIRM information as a
mitigation service. The City can help residents submit requests for map amendments and
revisions when these are needed to show that a building is outside the mapped floodplain.
Although FEMA maps are accurate, users and inquirers must remember that maps are not
perfect. They display only the larger flood-prone areas that have been studied. In some
areas, watershed developments make even recent maps outdated. Those inquiring about
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flood maps must be reminded that being outside the mapped floodplain is no guarantee
that a property will never flood. In fact, many properties that flood are not located in a
designated floodplain.
By taking the initiative locally to accurately map problem areas with information not
already on FEMA maps, a community can warn residents about potential risks that may
not have been anticipated. Upgrading maps provides a truer measure of risks to a
community.
Other Hazard Data
Other data that can be shown on maps include those hazards that are distributed
geographically. These include:







Dam breach inundation areas
Levee failure inundation areas
Expansive soils
Wildfire risk zones
Earthquake risk zones
Hazardous materials sites
Wetlands
General location maps for many of these natural and man-made hazards have been
developed by U. S. Army Corps of Engineers, Association of South Central Governments
(ASCOG), Oklahoma Geological Survey, and R. D. Flanagan & Associates, several of
which are included in this Holdenville Hazard Mitigation Plan study.
Flood zone determinations are available, free of charge, to any citizen through the
Floodplain Administrator in the Hughes County Commissioner’s Office. If the
determination is for a building permit, Holdenville ordinances must be followed.
B.1.6
Library
The Holdenville Public Library is a place for residents to seek information on hazards,
hazard protection, and protecting natural resources. Historically, libraries have been the
first place people turn to when they want to research a topic. Interested property owners
can read or check out handbooks or other publications that cover their situation. The
libraries also have their own public information campaigns with displays, lectures, and
other projects, which can augment the activities of the local government.
The Holdenville Public Library System maintains flood related documents required under
the NFIP and CRS. The documents are available to the public in the library.
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B.1.7
Web Sites
Today, Web sites are becoming more
popular as research tools. They provide
quick access to a wealth of public and
private sites and sources of
information. Through links to other
Web sites, there is almost no limit to
the amount of up to date information
that can be accessed by the user.
The City of Holdenville Web site can
be accessed at
www.CityOfHoldenville.com.
FEMA’s Mapping Web site is at
Web sites have become one of the most popular
www.fema.gov/business/nfip/mscjump
research tools
page.shtm. Additional web sites related
to specific hazards are listed in the
following table.
Table B–1: Multi-Hazard Mitigation Web Sites
Agency
Web Address
General
www.fema.gov
www.odcem.state.ok.us
www.ibhs.org/
www.usgs.gov/themes/hazard.html
Floods
Oklahoma Water Resources Board
www.owrb.state.ok.us/
Oklahoma Floodplain Managers Association
www.okflood.org/
U.S. Army Corps of Engineers
www.usace.army.mil/
National Flood Insurance Program
www.fema.gov/nfip/whonfip.shtm
Stormwater Manager's Resource Center
www.stormwatercenter.net/
High Winds
National Climatic Data Center
www.ncdc.noaa.gov/oa/ncdc.html
Lightning
National Lightning Safety Institute
www.lightningsafety.com/nlsi_lls.html
Extreme Heat
National Weather Service - Heat Index
www.hpc.ncep.noaa.gov/heat_index.shtml
Drought
OWRB - Drought Monitoring Page
www.owrb.state.ok.us/supply/drought/drought_index.php
Expansive Soils
US Department of Agriculture
www.usda.gov/
Natural Resource Conservation Service
www.nrcs.usda.gov/
Urban Fires
Oklahoma State Fire Marshal's Office
www.oklaosf.state.ok.us/~firemar/
National Fire protection Association
www.nfpa.org
Federal Emergency Management Agency
Oklahoma Dept. of Emergency Management
Institute for Business and Home Safety
USGS - Hazards Page
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Agency
Web Address
Wildfires
www.usgs.gov/themes/wildfire.html
Earthquakes
U.S. Geological Survey
www.usgs.gov/
Oklahoma Geological Survey
www.okgeosurvey1.gov/home.html
National Geophysical Data Center
www.ngdc.noaa.gov/
Hazardous Materials Events
National Response Center
www.nrc.uscg.mil
National Transportation Safety Board
www.ntsb.gov/
Oklahoma Department of Environmental Quality www.deq.state.ok.us/
Environmental Protection Agency
www.epa.gov
Dam Failures
Oklahoma Water Resources Board
www.owrb.state.ok.us/
US Army Corps of Engineers
www.usace.army.mil/
Grand River Dam Authority
www.grda.com/
USGS Wildfires
B.1.8
Real Estate Disclosure
After a flood or other natural
disaster, people often say they
would have taken steps to
protect themselves if they had
known their property was
exposed to a hazard.
Flood insurance is required
for buildings located within
the base floodplain if the
mortgage or loan is federally
insured. However, because
this requirement has to be met
only ten days before closing,
applicants are often already
committed to purchasing a
property when they first learn
of the flood hazard.
Flooding and other hazards are sometimes not disclosed until
it is too late. Hazard maps can help homebuyers avoid
surprises like this.
The "Residential Property Condition Disclosure Act" requires sellers to provide potential
buyers with a completed, signed and dated "Residential Property Condition Disclosure
Statement". Included in the statement are disclosures regarding flooding and flood
insurance. For a copy of the "Residential Property Condition Disclosure Statement" see
http://www.orec.state.ok.us/pdf/disclose3.pdf.
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B.1.9
Firewise Communities
While incorporating components from several of the different mitigation strategies,
Firewise primarily depends on homeowners taking actions to protect their own property,
so Public Education and Information is key to the success of the Firewise
program. While it is not possible, or in many cases even desirable, to
prevent wildfires, it is certainly possible, by interrupting the natural flow of
the fire, to assure that wildfires will not produce catastrophic home or crop
losses. In the words of Judith Cook, Project Manager for Firewise
Communities/USA, “We can modify our home ignition zones. We’re
basically saying to the fire, ‘there’s nothing for you here!’”
Firewise Community USA is a project of the National Wildfire Coordinating Group. It
recognizes communities that have gone through a process to reduce the dangers of
wildfires along what is referred to as the Wildland-Urban Interface (WUI). Additional
information on the Firewise Community program can be found at www.firewise.org/usa.
In order to become a Firewise Community, a community will:
1. Contact a Firewise Specialist. In
Oklahoma, the Firewise Specialist
may be reached through the
Oklahoma Department of
Agriculture, Forestry Services, at
(405) 521-3864. The Specialist
will coordinate with local fire
officials to schedule a site visit and
assess the community.
2. The community will create a
Firewise Board that includes
homeowners, fire professionals,
and other stakeholders.
A home in the WUI surrounded by a
“defensible” zone that helped protect it from
damage during a wildfire outbreak
3. The Firewise Specialist will
schedule a meeting with the Board
to present the assessment report for review and acceptance.
4. The Board will use the report to create agreed-upon, area-specific solutions to the
fire issues, which the Specialist will review and, if acceptable, will work with the
community to seek project implementation funds, if necessary.
5. Local solutions will be implemented following a schedule designed by the local
Board and the Specialist, A permanent Firewise task force or committee is created
that will maintain the program into the future.
6. A completed plan and registration form will be submitted to Firewise
Communities/USA for formal recognition of the Community.
B.1.10 Business Continuity Planning and Mitigation
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While Business Continuity
Planning (BCP) can include
portions from many of the
categories listed in this chapter, an
integrated program for businesses
is a frequently neglected
component in a community’s
mitigation strategy. It has been
demonstrated repeatedly that many
businesses that close their doors
following a disaster either fail to
re-open, or struggle to remain open
following the event. This is
especially true of small to medium
Insurance is a start, but won’t cover the cost of lost
businesses that may rely on a
sales, lost jobs and lost customers if a business is
limited number of locations and a
affected
narrow customer base, or may not
have the economic reserves to recover from financial losses. The lack of ability to
recover may be for several reasons:















Absenteeism from employees who are affected or who have affected family
members;
Psychological trauma from losing co-workers;
Loss of an irreplaceable executive or manager;
Economic stress on the business from having to make repairs and replenish stock over
and above what may be covered by insurance;
Loss of revenue from having the doors closed for even a short period of time;
Loss of the customer base, either from people who are forced to evacuate the area or
who may not have immediate disposable income for the company’s products;
Loss of a critical customer or the vendor of a critical inventory item (“upstream” and
“downstream” issues);
Loss of critical data, either paper or electronic records;
An interruption in community infrastructure (utilities, road access, media losses, etc.).
In addition, the loss of a business, even for a short period of time, may adversely
affect the community in many ways, some of which may include:
Loss of tax revenue for city services;
Loss of jobs for community residents;
Loss of access to the company’s products (especially significant if the company
supplies an essential service or product, such as construction equipment, medications,
transportation, or groceries);
Effective Business Continuity Planning (BCP) may include such activities as:
Making regular back-ups of critical data and keeping it in an off-site location;
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
Maintaining accurate contact information (phone, e-mail, pager, etc.) on critical
employees;
 Identifying potential off-site locations that can be used in case the primary location of
the company is damaged or inaccessible;
 Reviewing all activities of a company and identifying which activities are critical and
must resume right away, which are less critical and may not need to resume for a
short period of time, and which activities can be put on hold for a longer period of
time;
 Developing “canned” PR pieces that can be quickly disseminated in the event of an
incident at the company;
 Having an honest conversation with insurers to determine that policies are sufficiently
inclusive and appropriate for the business;
 Communicating with suppliers and critical customers on what their emergency
response and business resumption plans include.
Business continuity planning can be facilitated by the
community in a number of ways, primarily in the area of
Public Information.

The Chamber of Commerce may sponsor programs such
as the Institute for Business & Home Safety’s (IBHS)
Open For Business presentation. For more information,
see www.ibhs.org/business_protection.
 The American Red Cross has also teamed with the
Federal Emergency Management Agency to produce the
Emergency Management Guide for Business and
Industry. More information is available at
www.redcross.org/services/disaster/0,1082,0_606_,00.html.
Several professional groups such as the Association of Contingency Planners (www.acpinternational.com/okla/) or ARMA, a professional organization of Records & Information
Management professionals (www.arma.org) may be available in your area to assist with
developing disaster preparedness and mitigation plans or exploring ways to safeguard
critical records and information.
In addition, if a community is promoting Community Emergency Response Teams
(CERT), business CERTs can be developed to respond to a disaster, not only within a
neighborhood, but also within a business establishment. CERTs are trained in disaster
organization, immediate disaster evaluation, immediate disaster first aid, light search and
rescue, and light fire suppression. For more information on CERT, see
www.citizencorps.gov/cert.
B.1.9
Conclusions
1. There are many ways public information programs can be used so people and
businesses will be more aware of hazards they face and how they can protect
themselves.
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2. Most public information activities can be used to advise people about all hazards, not
just floods.
3. Other public information activities require coordination with other organizations,
such as schools and real estate agents.
4. There are several area organizations that can provide support for public information
and educational programs.
B.1.10 Recommendations
Refer to Chapter 6: Action Plan and Mitigation Measures, Table 6–1, for a complete
listing of all recommended mitigation measures by hazard and priority.
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Figure B-1:
Public Service Notice for Flooding
Flood Safety

Do not walk through flowing water. Drowning is the number one cause of flood
deaths. Currents can be deceptive; six inches of moving water can knock you off
your feet. Use a pole or stick to ensure that the ground is still there before you go
through an area where the water is not flowing.

Do not drive through a flooded area. More people drown in their cars than
anywhere else. Don't drive around road barriers; the road or bridge may be
washed out.

Stay away from power lines and electrical wires. The number two flood killer after
drowning is electrocution. Electrical current can travel through water. Report
downed power lines to the Mayor’s Action Line, 596-2100.

Look out for animals that have been flooded out of their homes and who may seek
shelter in yours. Use a pole or stick to poke and turn things over and scare away
small animals.

Look before you step. After a flood, the ground and floors are covered with debris
including broken bottles and nails. Floors and stairs that have been covered with
mud can be very slippery.

Be alert for gas leaks. Use a flashlight to inspect for damage. Don't smoke or use
candles, lanterns, or open flames unless you know the gas has been turned off
and the area has been ventilated.

Carbon monoxide exhaust kills. Use a generator or other gasoline-powered
machine outdoors. The same goes for camping stoves. Charcoal fumes are
especially deadly -- cook with charcoal outdoors.

Clean everything that got wet. Flood waters have picked up sewage and chemicals
from roads, farms, factories, and storage buildings. Spoiled food, flooded
cosmetics, and medicine can be health hazards. When in doubt, throw them out.

Take good care of yourself. Recovering from a flood is a big job. It is tough on both
the body and the spirit and the effects a disaster has on you and your family may
last a long time.
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B.2 Preventive Measures
Preventive activities are designed to keep matters from occurring or getting worse. Their
objective is to ensure that future development does not increase damages or loss of life,
and that new construction is protected from those hazards. Preventive measures are
usually administered by building, zoning, planning, and code enforcement offices. They
typically include planning, zoning, open space preservation, building codes, drainage
criteria, master drainage plans and floodplain development regulations, and stormwater
management. These aspects of preventive measures are discussed in this section as
follows:
B.2.1 Planning
B.2.2 Zoning
B.2.3 Open space preservation
B.2.4 Building codes
B.2.5 Floodplain development regulations
B.2.6 Stormwater management
The first three measures (planning, zoning, and
open space preservation) work to keep damageprone development out of hazardous or sensitive
areas.
The next two measures (building codes and
floodplain development regulations) impose
standards on what is allowed to be built in the
floodplain. These protect buildings, roads, and
other facilities from flood damage and prevent the
new development from making any existing flood
problem worse. Building codes are also critical to
mitigating the impact of non-flood hazards on new
buildings.
The Holdenville mitigation planning
process involves meetings with civic
groups and local citizens, as well as
decision-making councils and
commissions
Stormwater management addresses the runoff of stormwater from new developments
onto other properties and into floodplains.
B.2.1
Planning
While plans generally have limited authority, they reflect what the community would like
to see happen in the future. Plans guide other local measures such as capital
improvements and the development of ordinances. Planning can include, but is not
limited to:
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 Capital Improvement
Plans
 Zoning Ordinance
Adoption or
Amendments
 Subdivision
Ordinances or
Amendments
 Building Code
Adoption or
Amendments
 Conservation
Easements
 Transfer of
Development Rights
 Purchase of Easement
/ Development Rights
 Stormwater
Management
Ordinances or
Amendments
R.D. Flanagan & Associates
Infrastructure planning decisions can affect flood hazard
mitigation. For example, decisions to extend roads or utilities
to an area may increase exposure. Communities may consider
structural flood protections such as levees or floodwalls.
Examples of zoning methods that affect flood hazard
mitigation include:
1. Adopting ordinances that limit development in the
floodplain.
2. Limiting the density of developments in the floodplain.
3. Requiring floodplains be kept as open space.
Subdivision design standards can require elevation data
collection during the platting process. Lots may be required to
have buildable space above the base flood elevation.
Requirements for building design standards and enforcement
include:
1. A residential structure be elevated.
2. A non-residential structure be elevated or floodproofed.
Conservation easements may be used to protect
environmentally significant portions of parcels from
development. They do not restrict all use of the land. Rather,
they direct development to areas of land not environmentally
significant.
In return for keeping floodplain areas in open space, a
community may agree to allow a developer to increase
densities on another parcel that is not at risk. This allows a
developer to recoup losses from non-use of a floodplain site
with gains from development of a non-floodplain site.
Compensating an owner for partial rights, such as easement or
development rights, can prevent a property from being
developed contrary to a community’s plan to maintain open
space. This may apply to undeveloped land generally or to
farmland in particular.
Stormwater ordinances may regulate development in upland
areas in order to reduce stormwater run-off. Examples of
erosion control techniques that may be employed within a
watershed are include proper bank stabilization with sloping
or grading techniques, planting vegetation on slopes, terracing
hillsides, or installing riprap boulders or geotextile fabric.
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 Multi-Jurisdiction
Cooperation Within
Watershed
 Comprehensive
Watershed Tax
 Post-Disaster
Recovery Ordinance
B.2.2
Forming a regional watershed council helps bring together
resources for comprehensive analysis, planning, decisionmaking, and cooperation.
A tax can be used as a mitigation action in several ways:
1. tax funds may be used to finance maintenance of
drainage systems or to construct reservoirs.
2. tax assessments may discourage builders from
constructing in a given area.
3. taxes may be used to support a regulatory system.
A post-disaster recovery ordinance regulates repair activity,
generally depending on property location. It prepares a
community to respond to a disaster event in an orderly fashion
by requiring citizens to:
1. obtain permits for repairs.
2. refrain from making repairs.
3. make repairs using standard methods.
Zoning
_____’s zoning ordinances regulate development by dividing the community into zones
or districts and setting development criteria for each zone or district. Zoning ordinances
are considered the primary tool to implement a comprehensive plan’s guidelines for how
land should be developed.
B.2.3
Floodplain Development Regulations
Most communities with a flood problem participate in the National Flood Insurance
Program (NFIP). The NFIP sets minimum requirements for subdivision regulations and
building codes. These are usually spelled out in a separate ordinance.
Experience showed that the National Flood Insurance Program's minimum standard is
insufficient for developing urban communities, such as _____. The city's regulations
exceed the NFIP’s minimum national standards in several significant ways.
The Community Rating System (CRS) is a companion program to the NFIP. It rewards a
community for taking actions over and above minimum NFIP requirements with the goal
of further reducing flood damages in the community. The more actions a community
takes, the lower the premiums for flood insurance within that community.
Subdivision regulations govern how land will be subdivided into individual lots, and set
the construction and location standards for the infrastructure the developer builds to serve
those lots, including roads, sidewalks, utility lines, storm sewers, and drainageways. They
provide an additional vehicle for floodplain development rules. For example, some
communities require that every subdivision in a floodplain provide a building site above
the flood level for every lot and/or require streets to be at or no more than one foot below
the base flood elevation.
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Floodplains are only part of flood-management considerations. Water gathers and drains
throughout entire watersheds, from uplands to lowlands. Each watershed is an interactive
element of the whole. A change at one place can cause changes elsewhere, whether
planned or inadvertent. _____ is reviewing the development of a comprehensive, basinwide Master Drainage Plan that identifies existing and potential future drainage and
flooding problems to public facilities and private property.
Minimum National Flood Insurance Program Regulatory Requirements
The National Flood Insurance Program (NFIP) is administered by the Federal Emergency
Management Agency (FEMA). As a condition of making flood insurance available for their
residents, communities that participate in the NFIP agree to regulate new construction in the
area subject to inundation by the 100-year (base) flood.
There are four major floodplain regulatory requirements. Additional floodplain regulatory
requirements may be set by state and local law.
1. All development in the 100-year floodplain must have a permit from the community.
The NFIP regulations define “development” as any manmade change to improved or
unimproved real estate, including but not limited to buildings or other structures,
mining, dredging, filling, grading, paving, excavation or drilling operations or storage
of equipment or materials.
2. Development should not be allowed in the floodway. The NFIP regulations define the
floodway as the channel of a river or other watercourse and the adjacent land areas
that must be reserved in order to discharge the base flood without cumulatively
increasing the water surface elevation more than one foot. The floodway is usually
the most hazardous area of a riverine floodplain and the most sensitive to
development. At a minimum, no development in the floodway may cause an
obstruction to flood flows. Generally an engineering study must be performed to
determine whether an obstruction will be created.
3. New buildings may be built in the floodplain, but they must be protected from damage
by the base flood. In riverine floodplains, the lowest floor of residential buildings must
be elevated to or above the base flood elevation (BFE). Nonresidential buildings must
be either elevated or floodproofed.
4. Under the NFIP, a “substantially improved” building is treated as a new building. The
NFIP regulations define “substantial improvement” as any reconstruction,
rehabilitation, addition, or other improvement of a structure, the cost of which equals
or exceeds 50 percent of the market value of the structure before the start of
construction of the improvement. This requirement also applies to buildings that are
substantially damaged.
Communities are encouraged to adopt local ordinances that are more comprehensive or
provide more protection than the state or Federal criteria. This is especially important in areas
with older Flood Insurance Rate Maps that may not reflect the current hazard. Such
ordinances could include prohibiting certain types of highly damage-prone uses from the
floodway or requiring that structures be elevated 1 or more feet above the BFE. The NFIP’s
Community Rating System provides insurance premium credits to recognize the additional
flood protection benefit of higher regulatory standards.
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B.2.4
Stormwater Management
Development outside a floodplain can contribute significantly to flooding problems.
Runoff is increased when natural ground cover is replaced by urban development. To
prevent stormwater from flooding roads and buildings, developers construct storm sewers
and improve ditches to carry the water away more efficiently.
As watersheds develop, runoff usually becomes deeper and faster and floods become
more frequent. Water that once lingered in hollows, meandered around oxbows, and
soaked into the ground now speeds downhill, shoots through pipes, and sheets off
rooftops and paving.
Insurance purposes require that NFIP floodplain maps must be based on existing
watershed development, but unless plans and regulations are based on future watershed
urbanization, development permitted today may flood tomorrow as uphill urbanization
increases runoff.
This combination of
increased runoff and more
efficient stormwater
channels leads to increases
in downstream storm
peaks and changes in the
timing when storm peaks
move downstream.
Unconstrained watershed
development often will
overload a community's
drainage system and
aggravate downstream
flooding.
In addition to detention facilities, stormwater management plans
can include restoring some channelized streams with meanders
and native vegetation to slow runoff and prevent flash flooding
A second problem with stormwater is its impact on water quality. Runoff from developed
areas picks up pollutants on the ground, such as road oil and lawn chemicals, and carries
them to the receiving streams.
Holdenville has participated in the National Flood Insurance Program (NFIP) since 1978.
Retention / Detention
Some communities with stormwater management regulations require developers to build
retention or detention basins to minimize the increases in the runoff rate caused by
impervious surfaces and new drainage systems. Generally, each development must not let
stormwater leave at a higher rate than under pre-development conditions.
The Community Rating System (CRS) uses three factors to measure the impact of
stormwater management regulations on downstream flooding:
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1. What developments have to account for their runoff? If only larger subdivisions have
to detain the increased runoff, the cumulative effect of many small projects can still
produce greater flows to downstream properties.
2. How much water is managed? Historically, local stormwater management programs
address smaller storms, such as the 2- or 10-year storms. The CRS reflects the
growing realization nationally that the runoff from larger storms must be managed. It
provides full credit only for programs that address all storms up to the 100-year
storm.
4. Who is responsible to
ensure that the facility
works over time? Roads
and sewers are located
on dedicated public
rights-of-way and the
community assumes the
job of maintaining them
in the future. Stormwater
management detention
basins have traditionally
stayed on private
property and
maintenance has been
left up to owner. Often
Stormwater Detention Ponds manage the increased runoff from
new developments, temporarily store flood waters, and can be
homeowners
used for community parks, recreation, and open-space
associations do not know
how and do not have the capability to properly maintain these facilities. Half the CRS
credit is based on whether the community assumes responsibility to ensure that the
facilities are maintained.
Holdenville does not participate in the Community Rating System. However, built as it is
on high ground, Holdenville has no major streams or drainage channels within the
existing urban area. The one flood hazard area identified on the 1978 NFIP map is
associated with a WPA-built drainage ditch.
Watershed Approaches
The standard regulatory approach of requiring each development to manage stormwater
to the same criteria has several shortcomings:
1. It does not account for differences in stream and watershed conditions (although the
standards can be revised to reflect findings from watershed studies).
2. Municipalities within the same watershed may require different levels of control of
stormwater.
3. There is no review of the downstream impacts from runoff or any determination of
whether the usual standards compound existing flooding problems.
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4. It results in many small basins on private property that may or may not be properly
maintained.
The way to correct these deficiencies is to conduct a master study of the watershed to
determine the appropriate standards for different areas and, sometimes, to identify where
a larger central basin would be more effective and efficient than many smaller ones. The
CRS provides up to double the stormwater management regulations credit if communities
adopt such master plans.
B.2.5
Building Codes
Hazard protection standards for all new and improved or repaired buildings can be
incorporated into the local building code. These standards should include criteria to
ensure that the foundation will withstand flood forces and that all portions of the building
subject to damage are above, or otherwise protected from, flooding.
Building codes are also a prime mitigation measure for other natural hazards, especially
earthquakes, tornadoes, windstorms and heat and cold. When properly designed and
constructed according to code, the average building can withstand the impacts of most of
these forces. The code could include provisions such as:




Requiring sprinkler systems for fire protection in larger or public buildings,
Regulating overhanging masonry elements that can fall during an earthquake,
Ensuring that foundations are strong enough for earth movement and that all
structural elements are properly connected to the foundation, and
Making sure roofing systems will handle high winds and expected snow loads.
The City of Holdenville has adopted and enforces the latest edition of the BOCA basic
building code, which includes the International Building Code, the International
Residential Code (One and Two Family Dwelling Code), the International Plumbing
Code, and the International Mechanical Code. The City has also adopted the National
Electrical Code of the National Board of Fire Underwriters, the Fire Prevention Code of
the American Insurance Association, the National Fuel Gas Code, and Pamphlet 58,
“Storage and Handling of Gases” issued by the National Fire Protection Association.
B.2.6 IBHS Fortified Home Program
What is a Fortified Home
The Fortified…for Safer Living home program gives builders and homeowners a set of
criteria for upgrades that help reduce the risk of damage from natural disasters. The
program raises a homes’ overall safety above building code minimum requirements.
During construction and upon completion a home is inspected and certified as a
“Fortified…for Safer Living” home.
The combination of materials and techniques produces residences equipped to better
resist hurricanes, tornadoes, fire and floods. The fortified home construction method
produces homes that are comfortable while being resistant to natural disasters.
The following are features of a “Fortified…for Safer Living” home:
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







The home and critical utilities are elevated by reinforced continuous piles a minimum
of two feet above ground-level walls, stairs and Base Flood Elevation (BFE).
The home is connected from the peak of the roof to the foot of the reinforced piles to
form a continuous load path capable of withstanding 130 mph winds.
Windows, doors and other openings are properly flashed and protected to withstand
the impact of windborne debris without penetration of wind and water.
The roof truss system has a 110 mph wind rated covering, a secondary moisture
barrier, twice the required underlayment, thicker plywood deck sheathing and a
stronger holding nail and nailing pattern.
Other features include non-combustible roof materials, reinforced entry garage doors
and landscaping techniques reducing wildfire and flooding vulnerability.
A certified inspector verifies all required Fortified home products and materials are
installed correctly in accordance with manufacturer’s specifications for
“Fortified…for Safer Living” program specifications.
The home and property are also verified to be a low risk hazard for exposure to
wildfire.
For more information about fortified homes, see
www.concretehomescouncil.org/p_room/SBGFortified.pdf.
Economics of a Fortified Home
Cost (new home)
Depending on the quality of the material the buyer chooses, the cost to add fortified
features could be as low as five percent of the total cost of a new home. See the following
table, from the Institute of Business and Home Safety (IBHS) website at
www.ibhs.org/research_library/view.asp?id=277, for a typical upgrade.
Table B-2:
Cost Differentials for Fortified Home vs. standard Construction
As-built base home price: $151,500 (including lot and options, before "Fortified" upgrade).
Standard
Home
Windows and doors
"Fortified"
Home
Incremental Cost to
"Fortify"
5,450*
$15,500** ($7,700)
$10,050 ($2,250)
Garage doors
$650
$1,250
$600
Roof decking
$650
$1,750
$1,100
$0
$650
$650
$2,350
$3,350
$1,000
Concrete/steel down pours
$0
$500
$500
Fortified inspection costs
$0
$1,000
$1,000
Sealing roof joints
Roof covering
Total increment cost:
Percentage of base cost:
$14,900 ($7,100)
9.8% (4.7%***)
* Based on selection of PGT® window & door products.
** Fortified with PGT® WinGuard™ impact-resistant windows & doors.
*** Cost of panel shutters instead of impact-resistant windows.
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Cost (existing home)
Many of the fortification techniques used to build new homes are too expensive as
retrofits. Fortifying is much more expensive when a home is already built. However,
there are creative ways to reduce costs and still fortify an existing home. Improving roof
decking on an existing structure would cost about $5,000. For $50 a certain type of glue
gun available in most hardware stores can retrofit a roof as effectively as if a new roof
had been put on with wood screws.
Savings
In Florida, a fortified home can save homeowners over 20% in insurance premiums. A
standard brick, stone, or masonry house in a coastal area, with a deductible of $500 and a
2% hurricane deductible, would generate an annual premium of $2,240. In contrast, the
same home with the additional fortified construction features would pay an annual
premium of $1,746, a savings of $504, or 22.5%. Also, underwriting guidelines may be
relaxed for fortified homes. Insurers may make exceptions for fortified homes in areas
where they wouldn’t normally write policies.
Lower deductibles may be available. In Florida, policies covering wind damage typically
have a deductible of 2% of the covered amount. On a $150,000 home the deductible
would be $3,000. Fortified homeowners may be eligible for a flat deductible of $500.
As for intangible savings, personal photographs, important family documents and
computer data are just a few of the items a fortified home may protect. Additionally there
is the inconvenience and cost of other living arrangements while a home is being rebuilt.
For more information about one insurer’s guidelines on insuring fortified homes see
http://www.roughnotes.com/rnmag/august01/08p52.htm.
B.2.7 Smoke Detectors
Smoke detectors save lives. Approximately two-thirds of fatal fires occur in
the 10% of homes not protected with smoke detectors. You are twice as likely
to die in a fire if you do not have a properly operating smoke detector.
There are two basic types of smoke detectors - photoelectric and ionization. Photoelectric
smoke alarms generally are more effective at detecting slow-smoldering fires, fires that
might smolder for hours before bursting into flames. Ionization smoke alarms are more
effective at detecting fast-flaming fires, fires that consume materials rapidly and spread
quickly.
Test smoke detectors every month, change the batteries twice per year, clean detectors at
least once per year and replace smoke detectors every 10 years. For more facts about
smoke detectors see http://www.firemar.state.ok.us/forms/lg-alarm.pdf.
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B.2.8
Hurricane Fasteners
A home’s roof system is its most vulnerable and expensive
component. Hurricane roof-to-wall and additional straps are metal
connectors designed to hold a roof to its walls in high winds. They
make a home’s roof-to-wall connection five-to-15 times stronger
than traditional construction and can prevent damage in winds at least
75 mph. In many coastal communities, reinforcing connections are
enforced as a code restriction for new homes. Although designed to
protect roofs during the extended and violent winds of hurricanes,
these fasteners have proven effective in preventing roof removal in
tornado events. For more information on hurricane fasteners and
straps and protecting your roof go to
www.nhc.noaa.gov/HAW2/pdf/hurricane_retrofit.pdf.
B.2.9 Mobile Home Tie-Downs
Tie-downs are devices that anchor or otherwise secure
a mobile home to the ground in order to protect the
mobile home and its surroundings from damage
caused by wind and/or other natural forces. All tiedowns must comply with the specifications of the
home manufacturer or, in the absence of such
specifications, with standards set by the City Building
Inspector.
Anchors are available for different types of soil
conditions, including concrete slab. Auger anchors
have been designed for both hard soil and soft soil.
Rock anchors or drive anchors allow attachment to a
rock or coral base. This type of anchor is also pinned
to the ground with crossing steel stakes.
B.2.10 Lightning Warning Systems
There are two basic types of warning systems:
Strike Location and Identification Systems sense the electromagnetic pulse or the
electrostatic pulse that accompanies a lightning discharge. Sensors and processing
equipment work from those pulses or transients. These systems are most useful for
tracking storms, locating a lightning strike and producing
density plots of lightning activity by geographical area.
They do not provide early warning of an impending
storm.
Pre-storm Warning Systems sense the conditions that
precede a storm. All severe storms create a related
electrostatic field. This field provides a reliable storm
signature that is peculiar to severe storms and can be
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related to the severity of the storm. That signature is present prior to lightning activity
and provides a measurable parameter for pre-storm warning. The electrostatic field
strength is directly related to the state of the storm and/or its proximity to the site.
Therefore, an increase in the electrostatic field is an indicator of a storm moving into or
building up over the area. The warning time is determined by the rate of buildup or the
rate of movement of the storm.
Table B-3:
Lightning Detection Options
From the National Lightning Safety Institute
Lightning Detection Options - Accuracy vs. Cost vs. Complexity
Source of Information
Accuracy
Cost
Complexity
Hearing thunder
Danger is near
None
Simple
TV weather channel
General info.
None
Simple
Weather radios
General info.
Up to $40
Simple
Handheld detectors
50-60% accurate
Up to $500
Somewhat
Boltek system (www.boltek.com)
70-80% accurate
Up to $1,500
Somewhat
ThorGuard system (www.thorguard.com) 85-90%
$1,000 - $6,500
Somewhat
WXLine system (www.WXLine.com)
90-95% accurate
Up to $7,000
Somewhat
Subscription service
95%+ accurate
Monthly fee
Simple
Essential companions to any type of lightning warning system include:






A written Lightning Safety Policy;
Designation of Primary Safety Person;
Determination of when to suspend activities;
Determination of Safe/Not Safe Shelters;
Notification to Persons at Risk;
Education: at a minimum consider posting
information about lightning and the
organization’s safety program;
 Determination of when to resume activities.
The above options can be developed with many
variations, up to and including all-in-one units that
include a lightning threat detector, strobe light and
360 warning horn, and fully-automated
programmable computer to pre-set various options
for different types of facilities, such as times of
operation, degrees of sensitivity, and appropriate
sounding of an “all clear” signal.
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B.2.11 Power Outages from Winter Storms
Power outages from winter storms can lead to an abundance of problems. Homeowners
without power will resort to candles or open flames for heat and light. Generators are
noisy, produce potentially deadly exhaust and can cause power spikes damaging
equipment. Kerosene heaters burn oxygen and increase the potential of asphyxiation and
production of carbon monoxide. With fuel burning equipment there is a constant danger
of fire or explosion, burns and breathing poisonous exhaust. In addition, the inability to
heat a home increases the risk of pipes freezing.
Power lines can be protected and power outages prevented by:




Replacing existing power lines with heavier T-2 line, shorter spans, and heavier
poles and crossbars. It is estimated this will increase the overall strength of power
distribution lines by 66%.
Burying utility lines. This removes the risk of power outages due to ice
accumulation or tree limbs bringing down power lines.
Pruning trees away from power lines and enforcing policies regarding tree limb
clearances.
Designed-failure allowing for lines to fall or fail in small sections rather than as a
complete system.
For a success story on wind storm power outage mitigation, see
www.fema.gov/regions/v/ss/r5_n09.shtm. Options for alternate power sources are
described at www.currentsolutionspc.com/doc/distributed.pdf.
When power outages occur the first imperative in emergency power planning is to equip
essential facilities with permanent backup power, and to make sure existing backup
sources are properly sized and maintained. Essential post-disaster services include:










Medical care
Drinking water supply
Police and fire protection
Refrigeration
Communications
Pollution control (especially wastewater treatment)
Transportation (especially airports and seaports)
Weather forecasting
Temporary relief shelter
Emergency response command and control
Backup systems should be sized to meet the requirements of a facility's necessary public
services. Some facilities, such as wastewater treatment plants and hospitals, are so
important that backup systems should be sized to carry full loads. All backup power
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systems should be covered by a complete and consistent planned maintenance program
that includes regular inspection and operational testing.
The City of Holdenville has assessed the measures listed above, and has developed a
contingency plan for responding to massive power outage due to severe storms and
overload demands.
B.2.12 Standby Electric Generators
Standby electric generators can provide an extra sense of security during unpredictable
weather and resulting power outages. But even small, portable electric generators – if
used improperly – can threaten resident safety and the safety of power company linemen
working on the electrical system. For information on safely purchasing and using a
residential generator, see www.redcross.org/services/disaster/0,1082,0_565_,00.html.
Before purchasing a generator, consider how it will be used. That will help ensure buying
a generator that is correctly sized for the application in mind. Portable, gasoline-driven
generators are designed to be used for appliances with cords connected to them.
Typically, they are not designed to be connected to a home or building wiring. Citizens
should not attempt to install these devices to an electrical panel.
Fixed Generators
Large, fixed generators generally are directly connected to building wiring to provide
standby power during emergencies or power outages. However, the wiring needs to be
properly installed by a qualified electrical contractor. Properly installing a “permanent”
generator is extremely dangerous, and usually requires an electrical permit from the local
electrical or building inspector's office. Picking an appropriate fixed-site emergency
generator involves a number of issues including:



Type of fuel – Usually a choice between natural gas or diesel, depending on the
availability of either fuel in an emergency, and any possible regulations concerning
on-site storage. Natural gas emits far fewer exhaust emissions, which may also be a
factor.
Proper voltage – It’s usually best for an emergency generator to match your standard
incoming voltage, whether it’s single-phase 120/240 or three-phase 277/480, which is
the more common commercial application.
Power requirements – this will entail (a) identifying your critical functions, and (b)
having an electrical professional rate the running/start-up kilowatt (kW) requirements
for those functions. (See Table B-2 below for some basic power ratings for typical
applications.)
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
Cost – even a small (30-45 kW, 277/480 volt) natural gas standby generator can cost
$10,000, plus expenses for installation and automatic transfer switches. Most
emergency operations centers, 911 dispatch centers, and other critical facilities will
need a generator with higher requirements.
"Back feeding" - a dangerous condition
Improperly connecting a portable generator to electric wiring can produce “back feed” –
a dangerous current that can electrocute or critically injure residents or others. Back feed
into power lines from a generator could create “hot” power lines during an outage.
Linemen who expect the line to be de-energized could be injured.
One good way to avoid back feeding is to install a double-pole, double throw transferswitch gear. A qualified electrical contractor can install this transfer switch so that
dangerous back feed can be prevented. “In accordance with the National Electrical Code,
paragraph 700-6; Transfer equipment shall be designed and installed to prevent the
inadvertent interconnection of normal and emergency sources of supply in any operation
of the transfer equipment. Automatic transfer switches shall be electrically operated and
mechanically held.” The transfer switch must be a break-before-make switch, which will
“break” the electrical connection with commercial power lines before it “makes” the
connection between the generator and wiring. The switch also will prevent utility power
from damaging the generator when regular service is restored. An electrical diagram of
an installation using
a transfer switch
Figure 1: Standby power equipment
appears in Figure 1.
and connections
Since transfer
switches can be
expensive, another
way to install a
generator is to have a
sub-panel with main
breakers and power
from the main panel
or generator. Main
panel breaker and
generator breaker in
sub-panel would
have handles
interlocked to
prevent both from
being opened and closed at the same time. This prevents back feed to commercial power
when the generator is in use.
For commercial emergency installations, it is also critical that an electrical professional
review what the standard and max loads will be on the system. An evaluation needs to be
made as to what critical functions need to be operational – HVAC, communications,
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lighting, security, cooking capabilities, and so on. In health care facilities, assistive
devices and water supply equipment can pull large quantities of power, which will need
to be taken into account.
Typical wattage requirements are described in the following table:
Table B–2:
Typical Wattage Requirements for Generator Usage
Item
Air conditioner (12,000 BTU)
Battery Charger (20 A)
Chain Saw
Circular Saw
Coffee Maker
Compressor (1 HP)
Deep Freeze
Electric heater (small)
Electric Range (1 element)
Running Watts
1,700
500
1,200
1,000
1,000
2,000
500
1,500
1,500
Item
Furnace Fan (1/3 HP)
Light Bulb
Microwave Oven
Oil Burner on Furnace
Radio
Refrigerator
Submersible Pump (1 HP)
Sump Pump
Television
Running Watts
1,200
100
1,000
300
50
600
2,000
600
300
Source: Above information adapted from American Electric Power, A Word About Portable
Electric Generators, and Flathead Electric Cooperative, Safely Installing Your Electric
Generator, 2007.
B.2.13 Critical Facility Protection
Critical facilities require a higher level of protection because they are vital public
facilities, reduce pollution of floodwaters by hazardous materials, and ensure that the
facilities will be operable during emergencies. The Community Rating System (CRS)
provides credit for regulations protecting critical facilities from the 500-year flood.
Critical facilities should be constructed on properly compacted fill and have the lowest
floor (including basement) elevated at least one foot above the elevation of the 500-year
flood. A critical facility should have at least one access road connected to land outside the
500-year floodplain capable of supporting a 4,000-pound vehicle. The top of the road
must be no lower than six inches (6”) below the elevation of the 500-year flood.
B.2.14 Extreme Heat Protection
Elderly, children, low-income individuals and people with compromised immune systems
are more vulnerable to health risks due to intense climate changes, especially extreme
heat.
Aging is often accompanied by chronic illnesses that may increase susceptibility to
extreme environmental conditions. Poverty among elderly increases the risk.
Children are vulnerable due to their size, behavior and fact that they are growing and
developing. Children living in poverty or without access to proper medical care are
especially vulnerable.
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Low-income individuals are less likely to be able to afford air-conditioning and have less
access to health care.
Cancer, AIDS and diabetes compromise individual’s immune systems. Afflicted
individuals are more susceptible to physical stresses such as those during extreme heat.
Steps to protect individuals from the heat include:


Install window air-conditioners snugly and insulate spaces for a tighter fit.
Hang shades, draperies, awnings or louvers on windows receiving morning or
afternoon sun. Awnings or louvers can reduce heat entering the house by as much
as 80%.
 Stay indoors as much as possible. If air conditioning is not available stay on the
lowest floor out of the sunshine.
 Drink plenty of water and limit alcoholic beverages.
 Dress in light-colored, loose fitting clothes that cover as much skin as possible.
 Take a cool bath.
 Slow down.
Suggestions for a community heat emergency intervention plan include:

Standardizing guidelines for providing warnings to the public, including not only
the National Weather Service, but also Emergency Medical Services, the Health
Department, Emergency Management and other recognized community agencies.
 The public must have access to the steps to take to lessen the likelihood of heat
problems, such as staying in air-conditioning, if possible, and drinking plenty of
fluids.
 A room air conditioner loan program for bed-ridden/chair-ridden individuals can
assist those individuals who cannot physically leave their homes to visit an airconditioned location each day.
 “Buddy systems” can be established where an individual is assigned to check on
people at risk. The “buddy” should be trained to deal with heat related
emergencies.
 Utility companies should not be allowed to terminate service during a heat
emergency, even if individuals have not paid their bill.
For more information on extreme heat, mitigation and protection from the heat see
www.fema.gov/hazards/extremeheat/heatf.shtm.
B.2.15 Proper Storage and Disposal of Hazardous Materials
Household chemicals and motor oil dumped down drains or directly onto the ground can
work their way into the waterways and ground waters. Oil from a single oil change can
ruin one million gallons of fresh water. Used crankcase oil has been reported to account
for more than 40% of the oil pollution in waterways.
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Most public and private vehicle maintenance facilities have well-developed systems to
store their waste oil for recycling. However, "do-it-yourselfers" account for a large
percentage of the oil changes in any community. Therefore, it is important for community
recycling and solid waste management programs to include a system for waste oil
collection and provide ways to collect and dispose of household chemicals.
Many counties and communities offer household pollutant collection events. Among the
pollutants collected are oil-based paints, paint thinners, pesticides, fertilizers, cleansers,
acids, ammunition, batteries, motor oil, and antifreeze. Residents are not charged for
items collected. Events are typically funded by participating communities.
Containers of hazardous materials should not be located in a flood hazard area. If such a
location is necessary hazardous material containers need to be anchored. Contents can
contaminate water and multiply the damaging effects of flooding by causing fires or
explosions, or by otherwise making structures unusable. Buoyant materials should be
anchored. If they float downstream they may cause additional damage to buildings or
bridges or may plug a stream resulting in higher flood heights.
The link www.earth911.org/zip.asp provides a list of hazardous waste recycling centers
and used oil collection facilities based on zip code.
B.2.16 Water Conservation
97% of the earth's water is in the oceans and 2% is trapped in icecaps and glaciers. Only
about 1% of the earth's water is available for human consumption. The water supply is
taxed to supply all the competing interests: residential - including drinking and sanitation,
manufacturing, environmental, agricultural, and recreational.
Conserving water conserves energy - gas, electric or both, reduces monthly water and
sewer bills and postpones the construction of or eliminates the need to build expensive
capital projects such as wastewater or water treatment plants that will need future
maintenance.
Plumbing codes implemented in Phoenix Arizona in 1990 required low-flow faucets,
show heads, and toilets. Since then water consumption per capita has decreased 27
percent. Other cities, such as Wilsonville, Oregon, have implemented an inverted block
water rate structure charging customers higher rates as water consumption increases.
Public education can have the most significant impact. Household water conservation tips
include:
 Updating plumbing fixtures with low-flow devices.
 Keeping a pitcher of water in the refrigerator instead of running the tap.
 Watering the yard and gardens in the morning or evening when temperatures are
cooler to minimize evaporation.
 Collecting water used for rinsing and reusing it to water plants.
 Turning off the water while brushing teeth and shaving.
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

Landscaping with drought-resistant, low water use plants.
Using a hose nozzle and turning off the water while washing cars.
B.2.17 Open Space Preservation
Keeping the floodplain open and free from development is the best approach to
preventing flood damage. Preserving open space is beneficial to the public in several
ways. Preserving floodplains, wetlands, and natural water storage areas maintains the
existing stormwater storage capacities of an area. These sites can also serve as
recreational areas, greenway corridors and provide habitat for local flora and fauna. In
addition to being preserved in its natural landscape, open space may also be maintained
as a park, golf course, or in agricultural use.
B.2.18 Conclusions
1. Planning and zoning will help Holdenville develop the community proactively so that the
resulting infrastructure is laid out in a coherent and safe manner.
2. Building codes for foundations, sprinkler systems, masonry, and structural elements such
as roofs are prime mitigation measures for occurrences of floods, tornadoes, high winds,
extreme heat and cold, lightning strikes, and earthquakes.
3. Public education (see Section B.1) can demonstrate preventive measures individuals and
businesses can use to protect their own lives and facilities.
4. Holdenville participates in the NFIP and uses subdivision regulations to control the
direction of floodplain development.
5. Deficiencies in stormwater management can be corrected by conducting a master study of
watersheds to determine appropriate standards for different areas.
B.2.19 Recommendations
Refer to Chapter 6: Action Plan and Mitigation Measures, Table 6–1, for a complete
listing of all recommended mitigation measures by hazard and priority.
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B.3 Structural Projects
Structural projects are usually designed by engineers or architects, constructed by the
public sector, and maintained and managed by governmental entities. Structural projects
traditionally include stormwater detention reservoirs, levees and floodwalls, channel
modifications, drainage and storm sewer improvements, and community tornado saferooms.
B.3.1
Safe Rooms
Safe rooms are specially constructed shelters intended to protect occupants from tornados
and high winds. Constructed of concrete and steel, properly built safe rooms can provide
protection against wind speeds of 250mph and airborne debris traveling as fast as
100mph.
A safe room can be incorporated into the construction of a new home, or can be
retrofitted above or below ground into an existing home. The cost of constructing a safe
room is between $2500 and $6000, depending on the room size, location and type of
foundation on which the home is built. Safe rooms can function year-round as a usable
area, such as a bathroom, closet or utility room.
The State of Oklahoma, FEMA and
communities may offer reimbursement
grants for construction of certain
categories of Safe Rooms through the
Hazard Mitigation Grant Program
(HMPG).
FEMA 320, Taking Shelter From the
Storm: Building a Safe Room Inside
Your Home has specific designs for
tornado and hurricane safe rooms. To
obtain a copy of FEMA 320 refer to
www.fema.gov/fima/tsfs02.shtm.
National Storm Shelter Association
Dr. Ernst Kiesling, Civil Engineering Professor at
Texas Tech University inspects a safe room in the
aftermath of the May 8, 2003 tornadoes in Moore,
Oklahoma.
The National Storm Shelter Association (NSSA) is an industry organization developed to
ensure the highest quality of manufactured and constructed storm shelters. The NSSA has
developed a program to verify that design, construction, and installation of storm shelters
are in compliance with the most comprehensive and extensive safety standards available.
Without full compliance with the standard, vulnerabilities may exist and safety may be
compromised. Shelter-producing members of the NSSA submit shelter designs to the
scrutiny of an independent third-party engineering company and have their shelters tested
for debris impact resistance (FEMA 320 designs have been tested). In addition they will
file a certificate of installation with NSSA for each shelter.
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Upon building or installing a storm shelter,
the member applies a seal to the shelter
certifying that it is designed, built, and
installed to meet the NSSA standard. Only
the shelter producer or an agency that
carefully inspects the shelter design,
construction, and installation may certify
compliance with an applicable standard. Claims of “FEMA Certified” or “Texas Tech
Certified” are misleading since neither FEMA nor the Texas Tech Wind Science and
Engineering Research Center (contributors to the FEMA standards for individual and
community SafeRooms) certifies shelter quality. This program not only provides
assurance to the user of a storm shelter that it has been built to a certain performance
standard, but it shifts some responsibility from the community to provide verification
from building inspectors for compliance and reduces building inspectors’ training
requirements. Additional information on the NSSA certification program can be obtained
at www.nssa.cc.
B.3.2
School Safe Rooms
In the past, a school’s interior areas, especially hallways, have been designated as the best
place to seek refuge from violent storms. However, in 1999 the hallways of two schools
in Sedgwick County, Kansas received significant damage
which could have resulted in student casualties had school
been in session.
FEMA 361 publication, Design and Construction Guidance
for Community Shelters, provides guidelines for
constructing school safe rooms. A community shelter strong
enough to survive a violent storm can also be used as a
cafeteria, gymnasium or other common area.
Schools, administration buildings and institutions of higher
learning are required to have written plans and procedures
in place for protecting students, faculty, administrators and
visitors from natural and man-made disasters and emergencies. The requirement, directed
by Oklahoma House Bill HB1512, was enacted May 29, 2003.
For more information about Sedgwick County’s new school safe rooms go to
www.fema.gov/mit/saferoom/casestudies.shtm. To receive a copy of FEMA 361, see
www.fema.gov/pdf/hazards/nhp_fema361.pdf. For more information on HB1512, see
www.lsb.state.ok.us/2003-04HB/HB1512_int.rtf.
B.3.3
Reservoirs and Detention
Reservoirs control flooding by holding high flows behind dams or in storage basins. After
a flood peaks, water is released or pumped out slowly at a rate that the river can
accommodate downstream. The lake created may provide recreational benefits or water
supply (which could help mitigate a drought).
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Reservoirs are suitable for protecting
existing development downstream
from the project site. Unlike levees
and channel modifications, they do
not have to be built close to or disrupt
the area to be protected. Reservoirs
are most efficient in deeper valleys
where there is more room to store
water, or on smaller rivers where
there is less water to store. Building a
reservoir in flat areas and on large
rivers may not be cost-effective,
because large areas of land have to be
purchased.
Reservoirs provide storage of rainwater without the
hazards of maintaining a dam
In urban areas, some reservoirs are
simply manmade holes dug to store floodwaters. When built in the ground, there is no
dam for these retention and detention basins and no dam failure hazard. Wet or dry basins
can also serve multiple uses by doubling as parks or other open space uses.
B.3.4
Levees and Floodwalls
Probably the best-known flood control measure is a barrier of earth (levee) or concrete
(floodwall) erected between the watercourse and the property to be protected. Levees and
floodwalls confine water to the stream channel by raising its banks. They must be well
designed to account for large floods, underground seepage, pumping of internal drainage,
and erosion and scour.
Failure to maintain levees can lead to significant loss of life and property if they are
stressed and broken or breached during a flood event. An inspection, maintenance and
enforcement program helps ensure structural integrity.
Levees placed along the river or stream edge degrade the aquatic habitat and water
quality of the stream. They also are more likely to push floodwater onto other properties
upstream or downstream. To reduce environmental impacts and provide multiple use
benefits, a setback levee (set back from the floodway) is the best project design. The area
inside a setback levee can provide open space for recreational purposes and provide
access sites to the river or stream.
B.3.5
Channel Improvements
By improving channel conveyance, more water is carried away at a faster rate.
Improvements generally include making a channel wider, deeper, smoother or straighter.
Some smaller channels in urban areas have been lined with concrete or put in
underground pipes.
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B.3.6
Crossings and Roadways
In some cases buildings may be elevated
above floodwaters, but access to the
building is lost when floodwaters overtop
local roadways, driveways, and culverts
or ditches. Depending on the recurrence
interval between floods, the availability of
alternative access, and the level of need
for access, it may be economically
justifiable to elevate some roadways and
improve crossing points.
For example, if there is sufficient
downstream channel capacity, a small
Culverts like this one can constrict flow and cause
backwater flooding
culvert that constricts flows and causes
localized backwater flooding may be
replaced with a larger culvert to eliminate flooding at the waterway crossing point. The
potential for worsening adjacent or downstream flooding needs to be considered before
implementing any crossing or roadway drainage improvements.
B.3.7
Drainage and Storm Sewer Improvements
Man-made ditches and storm sewers help drain areas where the surface drainage system
is inadequate, or where underground drainageways may be safer or more practical. Storm
sewer improvements include installing new sewers, enlarging small pipes, and preventing
back flows. Particularly appropriate for depressions and low spots that will not drain
naturally, drainage and storm sewer improvements usually are designed to carry the
runoff from smaller, more frequent storms.
Because drainage ditches and storm sewers convey water faster to other locations,
improvements are only recommended for small local problems where the receiving
stream or river has sufficient capacity to handle the additional volume and flow of water.
To reduce the cumulative downstream flood impacts of numerous small drainage
projects, additional detention or run-off reduction
practices should be provided in conjunction with
the drainage system improvements.
B.3.8
Drainage System Maintenance
The drainage system may include detention
ponds, stream channels, swales, ditches and
culverts. Drainage system maintenance is an
ongoing program to clean out blockages caused
by an accumulation of sediment or overgrowth of
weedy, non-native vegetation or debris, and
remediation of stream bank erosion sites.
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“Debris” refers to a wide range of blockage materials that may include tree limbs and
branches that accumulate naturally, or large items of trash or lawn waste accidentally or
intentionally dumped into channels, drainage swales or detention basins. Maintenance of
detention ponds may also require revegetation or repairs of a restrictor pipe, berms or
overflow structure.
Maintenance activities normally do not alter the shape of a channel or pond, but they do
affect how well a drainage system can do its job. Sometimes it is a very fine line that
separates debris that should be removed from natural material that helps form habitat.
B.3.9
Conclusions
1. Reservoirs can hold high flows of water that can later be released slowly or retained
for recreational purposes or drought mitigation.
2. Levees and floodwalls are not as effective overall because of possible underground
seepage, erosion, degradation of aquatic habitat and water quality, and ineffectiveness
in large floods.
3. Channel improvements allow more water to be carried away faster.
4. The effectiveness of elevating buildings depends on the availability of alternative
access when flooding occurs.
5. Crossing and roadway drainage improvements must take into account additional
detention or run-off reduction.
6. Drainage and storm sewer improvements carry runoff from smaller, more frequent
storms.
7. Drainage system maintenance is an ongoing project of removing debris that decreases
the effectiveness of detention ponds, channels, ditches, and culverts.
B.3.10 Recommendations
Refer to Chapter 6: Action Plan and Mitigation Measures, Table 6–1, for a complete
listing of all recommended mitigation measures by hazard and priority.
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B.4 Property Protection
Property protection measures are used to modify buildings or property subject to damage
from various hazardous events. The property owner normally implements property
protection measures. However, in many cases technical and financial assistance can be
provided by a governmental agency. Property protection measures typically include
acquisition and relocation, flood-proofing, building elevation, barriers, retrofitting, safe
rooms, hail resistant roofing, insurance, and the like.
B.4.1 The City’s Role
Property protection measures are usually considered the responsibility of the property
owner. However, the City should be involved in all strategies that can reduce losses from
natural hazards, especially acquisition. There are various roles the City can play in
encouraging and supporting implementation of these measures.
Providing basic information to property owners is the first step in supporting property
protection measures. Owners need general information on what can be done. They need
to see examples, preferably from nearby.
Financial Assistance
Communities can help owners by helping to pay for a retrofitting project, just like they
pay for flood control projects. Financial assistance can range from full funding of a
project to helping residents find money from other programs. Some communities assume
responsibility for sewer backups and other flood problems that arose from an inadequate
public sewer or drain system.
Less expensive community programs include low interest loans, forgivable low interest
loans and rebates. A forgivable loan is one that does not need to be repaid if the owner
does not sell the house for a specified period, such as five years. These approaches do not
fully fund the project but they cost the community treasury less and they increase the
owner’s commitment to the flood protection project.
Often, small amounts of money act as a catalyst to pique the owner’s interest to get a selfprotection project moving. Several Chicago suburbs have active rebate programs that
fund only 20% or 25% of the total cost of a retrofitting project. These programs have
helped install hundreds of projects that protect buildings from low flood hazards.
Acquisition Agent
The City can be a focal point for many acquisition projects. In most cases, when
acquisition of a property is feasible, the City is the ultimate owner of the property, but in
other cases, the school district or other public agencies can assume ownership and the
attendant maintenance responsibilities.
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Other Incentives: “Non-financial Incentives”
Sometimes only a little funding is needed to motivate a property owner to implement a
retrofitting project. A flood insurance premium reduction will result if a building is
elevated above the flood level. This reduction is not enough to take much of a bite out of
the cost of the project, but it reassures the owner that he or she is doing the right thing.
Other forms of floodproofing are not reflected in the flood insurance rates for residential
properties, but they may help with the Community Rating System, which provides a
premium reduction for all policies in the community.
Other incentives to consider are programs to help owners calculate the benefits and costs
of a project and a “seal of approval” for retrofitted buildings. The latter would be given
following an inspection that confirms that the building meets certain standards. There are
many other personal but non-economic incentives to protect a property from flood
damage, such as peace of mind and increased value at property resale.
B.4.2 Insurance
Insurance has the advantage that, as long as the
policy is in force, the property is protected and
no human intervention is needed for the
measure to work. There are three types of
insurance coverage:
1. The standard homeowner’s, dwelling,
and commercial insurance policies cover
against the perils of wildfire and the
effects of severe weather, such as frozen
water pipes.
2. Many companies sell earthquake
insurance as an additional peril rider on
NFIP Coordinator Dianna Herrera presenting a
class on flood insurance requirements
homeowner’s policies. Individual
policies can be written for large
commercial properties. Rates and deductibles vary depending on the potential risk
and the nature of the insured properties.
3. Flood insurance is provided under the National Flood Insurance Program.
Flood Insurance
Although most homeowner’s insurance policies do not cover a property for flood
damage, an owner can insure a building for damage by surface flooding through the
National Flood Insurance Program (NFIP). Flood insurance coverage is provided for
buildings and their contents damaged by a “general condition of surface flooding” in the
area.
Building coverage is for the structure. Contents coverage is for the removable items
inside an insurable building. A renter can take out a policy with contents coverage, even
if there is no structural coverage.
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Some people have purchased flood insurance because the bank required it when they got
a mortgage or home improvement loan. Usually these policies just cover the building’s
structure and not the contents.
In most cases, a 30-day waiting period follows the purchase of a flood insurance policy
before it goes into effect. The objective of this waiting period is to encourage people to
keep a policy at all times. People cannot wait for the river to rise before they buy their
coverage.
B.4.3 Acquisition and Relocation
Moving out of harm’s way is the surest and
safest way to protect a building from
damage. Acquiring buildings and removing
them is also a way to convert a problem
area into a community asset and obtain
environmental benefits.
The major difference between the two
approaches is that acquisition is undertaken
by a government agency, so the cost is not
borne by the property owner, and the land
is converted to public use, such as a park.
Relocation can be either government or
owner-financed.
Moving a home out of the floodplain is sometimes
the only way to protect it from flooding
While almost any building can be moved, the cost goes up for heavier structures, such as
those with exterior brick and stone walls, and large or irregularly shaped buildings.
However, experienced building movers know how to handle any job.
Cost
An acquisition budget should be based on the median price of similar properties in the
community, plus $10,000 to $20,000 for appraisals, abstracts, title opinions, relocation
benefits, and demolition. Costs may be lower after a flood or other disaster. For example,
the community may have to pay only the difference between the full price of a property
and the amount of the flood insurance claim received by the owner.
One problem that sometimes results from an acquisition project is a “checkerboard”
pattern in which nonadjacent properties are acquired. This can occur when some owners,
especially those who have and prefer a waterfront location, prove reluctant to leave.
Creating such an acquisition pattern in a community simply adds to the maintenance
costs that taxpayers must support.
Relocation can be expensive, with costs ranging from $30,000 for a small wood frame
building to over $60,000 for masonry and slab on grade buildings. Two story houses are
more expensive to move because of the need to relocate wires and avoid overpasses.
Additional costs may be necessary for acquiring a new lot on which to place the relocated
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building and for restoring the old site. Larger buildings may have to be cut and the parts
moved separately. Because of all these complications, there are cases where acquisition is
less expensive than relocation.
Where Appropriate
Acquisition and relocation are appropriate in areas subject to:
 Flash flooding
 Deep waters
 Dam break flooding
 Landslides
 Potential hazardous materials spills
 Other high hazard that affects a specific area
Acquisition and relocation are not appropriate for hazards like tornadoes or winter storms
because there are no areas safe from the hazard. Relocation is also preferred for large lots
that include buildable areas outside the hazardous area or where the owner has a new lot
in a safer area.
Acquisition (followed by demolition) is preferred over relocation for buildings that are
difficult to move, such as larger, slab foundation, or masonry structures, and for
dilapidated structures that are not worth protecting.
B.4.4 Building Elevation
Raising a building above the flood level is the best on-site property protection method for
flooding. Water flows under the building, causing little or no damage to the structure or
its contents. Alternatives are to elevate on continuous foundation walls (creating an
enclosed space below the building) or elevation on
compacted earthen fill.
B.4.5 Barriers
Barriers keep surface waters from reaching a building.
A barrier can be built of dirt or soil (“berm”) or
concrete or steel (“floodwall”). In cases of shallow
flooding, regrading a yard can provide the same
protection as a separate barrier.
B.4.6 Retrofitting
This term covers a variety of techniques for modifying
a building to reduce its susceptibility to damage by one
or more hazards.
FEMA guides are available to
help homeowners retrofit their
flood-prone properties
Where Appropriate
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Some of the more common approaches are:
Floods and dam failures:
 Dry floodproofing keeps the water out by strengthening walls, sealing openings, or
using waterproof compounds or plastic sheeting on walls. Dry floodproofing is not
recommended for residential construction.
 Wet floodproofing, using water resistant paints and elevating anything that could be
damaged by a flood, allows for easy cleanup after floodwaters recede. Accessory
structures or garages below the residential structure are potential candidates for wet
floodproofing.
 Installing drain plugs, standpipes or backflow valves to stop sewer backup.
Tornado:
 Constructing an underground shelter or in-building “safe room”
 Securing roofs, walls and foundations with adequate fasteners or tie downs
 Strengthening garage doors and other large openings
High winds:
 Installing storm shutters and storm windows
 Burying utility lines
 Using special roofing shingles designed to interlock and resist uplift forces
 Installing/incorporating backup power supplies
Hailstorms:
 Installing hail resistant roofing materials
Lightning:
 Installing lightning rods and lightning surge interrupters
 Burying utility lines
 Installing/incorporating backup power supplies
Winter storms:
 Adding insulation
 Relocating water lines from outside walls to interior spaces
 Sealing windows
 Burying utility lines
 Installing/incorporating backup power supplies
Extreme heat and drought:
 Adding insulation
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
Installing water saver appliances, such as shower heads and toilets
Urban and wild fires:
 Replacing wood shingles with fire resistant roofing
 Adding spark arrestors on chimneys
 Landscaping to keep bushes and trees away from structures
 Installing sprinkler systems
 Installing smoke alarms
Earthquake:
 Retrofitting structures to better withstand shaking.
 Tying down appliances, water heaters, bookcases and fragile furniture so they won’t
fall over during a quake.
Common Measures
From the above lists, it can be seen that certain approaches can help protect from more
than one hazard. These include:


Strengthening roofs and walls to protect from wind and earthquake forces.
Bolting or tying walls to the foundation protect from wind and earthquake forces and
the effects of buoyancy during a flood.
 Adding insulation to protect for extreme heat and cold
 Anchoring water heaters and tanks to protect from ground shaking and flotation
 Burying utility lines to protect from wind, ice and snow.
 Installing backup power systems for power losses during storms
Installing roofing that is hail resistant and fireproof.
B.4.7
Impact Resistant Windows and Doors
Doors and windows can be
the most vulnerable
components of your home.
During high wind events,
such as thunderstorms or
tornadoes, wind-driven
debris can easily penetrate
unprotected or unreinforced
windows and doors,
breaching the secure
envelope of the structure.
The debris and rain may
cause damage to interior
furnishings or harm to
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When windows and
doors fail, wind
enters and creates
an internal pressure
that can lead to
catastrophic damage
to a home. (Drawing
courtesy of
Flash.org)
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residents, but the wind itself can create extreme pressures on the walls and ceiling,
leading to catastrophic structural failure. This danger can be mitigated by the installation
of impact-resistant windows and doors.
Windows
Today's impact-resistant glass sandwiches a laminated inner
layer made of polyvinyl butyral, a plastic, between two sheets
of glass. Stronger than a car windshield, the glass might shatter
if a heavy object crashes into it, but it won't break to bits. That
makes wind less likely to penetrate the envelope of a home and
create interior pressure severe enough to blow a roof off.
Impact-resistant windows are only as strong, though, as the
frame in which they rest. “An impact resistant window is tested
as a unit that includes the glass, the frame as well as the
attachment hardware and the installation method.” (FLASH)
The second type of impact-resistant glass uses a film applied to
the surface. Impact-resistant film is placed over the glass to
keep windows from shattering into sharp particles if broken.
Since these films are added to the glass, they may not be as effective as a standard
impact-resistant system. Their durability depends on how well the glass and protective
laminate stay in the frame and window assembly. They will be effective against smaller
objects, but larger pieces of debris may still take the window out of the frame. For more
information on protective window films and other technologies, visit the Protecting
People First Initiative (www.protectingpeople.org/arenspage.shtm) or the International
Window Film Association (www.iwfa.com/iwfa/Consumer_Info/safety.html).
While costs for replacing window glass or using impact-resistant glass in new
construction can be expensive, there are additional benefits that may be gained. Impactresistant glass has been used successfully to reduce burglaries, vandalism and break-ins
with both homes and businesses. In addition, using an impact-resistant glazing that is also
more energy efficient can produce substantial energy savings. According to the
Partnership for Advancing Housing Technology (PATH), a public-private partnership
between leaders in the homebuilding, product manufacturing, and insurance industries
and several Federal agencies:
Special glass “…can be used to both make windows impact resistant and more energy
efficient. Low-E and solar control low-E (also called spectrally selective) coatings can be
used to boost the energy efficiency of windows. Low-E double pane windows, most common
in cold and moderate climates, are more energy efficient than clear windows because the lowE coating reduces heat loss through the window.
Solar control glass, also called Low E2, is a good glass for hot climates because, in addition
to improving the insulating ability of windows, it also limits solar heat gain by blocking
passage of infrared and some ultraviolet rays. Solar control glass allows a higher level of
visible light to pass through a window with less solar heat gain reduction than tinted window
coatings.”
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PATH gives a tentative cost estimate for using impact resistant glass systems in a model
2,250 sq. ft. home at $14,850. (www.pathnet.org/sp.asp?id=18692). In addition,
residential users may view a window and door protection cost estimate tool at the
FLASH.org site http://www.blueprintforsafety.org/tools/shuttertoolhome.aspx.
One manufacturer provides the following pricing table for commercial applications:
Table B–5: Impact Resistant Windows Cost Estimate Table
The following pricing table is for estimating purposes only. Changes in dimensions, glass types, finishes, hardware
selection, volume discounts, and other variables could raise or lower prices. (Provided by CGI Windows,
www.cgiwindows.com.)
APPROXIMATE IMPACT RESISTANT PRICING 2007 - COMMERCIAL GRADE ALUMINUM PRODUCTS
Product
W
x
H
Max. Design
Pressure (PSF)
COST*
Series 238 - Casement Window
24"
x
48
+110 / -120
$400.12
Series 238 - Casement Window
30"
x
60
+110 / -120
$526.63
Series 238 - Casement Window
36"
x
60
+110 / -120
$593.31
Series 238 - Casement Window
32"
x
72
+85 / -85
$625.18
Series 360 - Single Hung Window
36"
x
72
+100 / -167.2
$593.80
Series 360 - Single Hung Window
54"
x
96"
+100 / -120
$1,274.27
96 3/4
+100 / -110
$2,425.69
Series 450 - Pair of Door
74 1/2" x
Aluminum Finish: White, Bronze, or Driftwood ESP
Glass Type: 7/16" Laminated Glass Typical (Ann/Ann) / 5/16" Lami Glass at Single Hungs (Ann/Ann)
Glass Color: Clear, Gray, Bronze, Dark Gray (Turtle Code)
* Note: Cost excludes special items, colonial muntins, HS/HS Glass, Temp/Temp Glass,
aluminum tube mullions, shipping, shop drawings, installation, permits, special engineering,
windload calculations, etc.
Garage Doors
Garage doors are
particularly vulnerable,
especially doublewide
garage doors because of
their long span and,
frequently, lightweight
materials. Reinforced
garage door and track
systems are available to
help avoid that problem.
Retrofit kits are also
available to reinforce
existing garage doors,
but the retrofit kits do
not provide the same
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Illustrating the dangers of unreinforced garage doors, in all but the
house at upper left, these doors have been breached, leading to
substantial roof damage – in some cases, completely removing a
second floor. But in the home with an intact garage door, the roof is
almost entirely undamaged.
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level of protection as systems designed to be wind and impact-resistant. (Source: Federal
Alliance for Safe Homes – FLASH. www.flash.org.)
B.4.8
Lightning Protection Systems
The purpose of a lightning protection system is to
intercept lightning and safely direct its current to
ground. If the system is properly designed, installed
and maintained it can provide almost 100%
protection to buildings.
The system for an ordinary structure includes at
least air terminals (lightning rods), down
conductors, and ground terminals. These three
elements of the system must form a continuous
conductive path for lightning current. Many systems
of air terminals now may not even be connected to
the building. They may be comprised of
freestanding cables or towers above or next to the
building.
National Fire Protection Association document NFPA 780, Standard for the Installation
of Lightning Protection Systems describes lightning protection system installation
requirements. NFPA 780 is available through
www.nfpa.org/Codes/NFPA_Codes_and_Standards/List_of_NFPA_documents/NFPA_7
80.asp. Additional information on design and construction of lightning protection systems
is available on www.montana.edu/wwwpb/pubs/mt8529ag.pdf.
B.4.9
Surge and Spike Protection
The average home has 2,200 or more power surges annually, 60% of which are generated
within the home. Most surges are caused by motors starting in air conditioners, garage
doors, refrigerators and other major appliances. Electronic appliances can be damaged or
destroyed by over-voltage surges or spikes.
Whole house surge protectors offer the first line of defense against high-energy, highvoltage surges. These devices thwart the energy of the initial surge and reduce it before it
reaches electrical appliances. In many cases this level of protection is enough to protect
the home. Surge protectors should be sufficient to also provide “spike protection,” which
can defend against the extremely high spiking voltage created by lightning strikes. Many
surge protectors, while effective against routine voltage fluctuations, may not defend
against high level spikes.
Surge protection devices connected directly to appliances offer the second line of
defense. They are the only defense against surges within the home as when, for example,
a large appliance kicks in. The combination of whole house and point-of-use surge
protection provides the best possible protection.
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For more information on whole house and point-of-use surge protectors, refer to
www.howstuffworks.com/surge-protector.htm.
B.4.10 Landscaping for Wildfire Prevention
The chance of losing property due to wildfire can be reduced using fire prevention
landscaping techniques. The amount of cleared space around a home improves its ability
to survive a wildfire. A structure is more likely to survive when grasses, trees and other
common fuels are removed, reduced or modified to reduce a fire’s intensity and keep it
away from the structure.
Zone 1: Moist
and trim. Turf,
perennials,
groundcovers
and annuals form
a greenbelt that is
regularly watered
and maintained.
Shrubs and trees
are located at
least 10 feet from
the house.
Zone 2: Low and
sparse. Slow
growing, droughttolerant shrubs and
groundcovers keep
fire near ground level.
Native vegetation can
be retained if it is low
growing, does not
accumulate dry,
flammable material
and is irrigated.
Zone 3: High and clean.
Native trees and shrubs are
thinned and dry debris on
the ground is removed.
Overgrowth is removed and
trees are pruned every 3-5
years.
Zone 4: Natural
area. Native
plants are
selectively
thinned. Highly
flammable
vegetation is
replaced with less
fire-prone species.
For comprehensive lists of steps to protect your home before, during and after a wildfire,
see www.fema.gov/pdf/library/98surst_wf.pdf or www.cnr.uidaho.edu/extforest/F3.pdf.
B.4.11 Conclusions
1. Acquisition and relocation of property is the most effective for property protection in
the case of hazards that are expected to occur repeatedly in the same locations.
Acquisition followed by demolition is preferable.
2. Other methods of property protection for flooding include raising building elevations
and building berms and floodwalls.
3. Building modifications are also appropriate for some hazards.
4. Property insurance has the advantage of protecting the property without human
intervention.
5.
The City can help in reducing losses from natural hazards by providing financial
assistance, having an acquisition program, and other incentives.
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B.4.12 Recommendations
Refer to Chapter 6: Action Plan and Mitigation Measures, Table 6–1, for a complete
listing of all recommended mitigation measures by hazard and priority.
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B.5 Emergency Services
Emergency services measures protect people during and after a hazard event. Locally,
Holdenville Emergency Management coordinates these measures. Measures include
preparedness, threat recognition, warning, response, critical facilities protection, and
post-disaster recovery and mitigation.
B.5.1
Threat Recognition
Threat recognition is the key. The first step in responding to a flood, tornado, storm or
other natural hazard is being aware that one is coming. Without a proper and timely threat
recognition system, adequate warnings cannot be disseminated.
Emergency Alert System (EAS)
Using digital technology to distribute messages to radio, television and cable systems, the
EAS provides state and local officials with the ability to send out emergency information
targeted to a specific area. The information can be sent electronically through broadcast
stations and cable systems even if those facilities are unattended.
Floods
A flood threat recognition system provides
early warning to emergency managers. A good
system will predict the time and height of the
flood crest. This can be done by measuring
rainfall, soil moisture, and stream flows
upstream of the community and calculating the
subsequent flood levels.
On larger rivers, including the Washita, the
National Weather Service does the measuring
and calculating, which is in the U.S.
Department of Commerce’s National Oceanic
and Atmospheric Administration (NOAA).
Flood threat predictions are disseminated on
the NOAA Weather Wire or NOAA Weather
Radio. NOAA Weather Radio is considered by
the federal government to be the official source
for weather information.
Areas subject to flooding should be clearly
posted
The National Weather Service issues notices to the public, using two levels of
notification:
Flood watch: conditions are right for flooding
Flood warning: a flood has started or is expected to occur
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On smaller rivers, local rainfall and river gages are needed to establish a flood threat
recognition system. The National Weather Service may issue a “flash flood watch.” This
means the amount of rain expected will cause ponding and other flooding on small
streams and depressions. These events are sometimes so localized and rapid that a “flash
flood warning” may not be issued, especially if no gages or other remote threat
recognition equipment is available.
Meteorological Hazards
The National Weather Service is the prime agency for detecting meteorological threats,
such as tornadoes, thunderstorms, and winter storms. As with floods, the Federal agency
can only look at the large scale, e.g., whether conditions are appropriate for formation of
a tornado. For tornadoes and thunderstorms, the county or municipalities can provide
more site-specific and timely recognition by sending out spotters to watch the skies when
the Weather Service issues a watch or warning.
NOAA All-Hazard Radios
The National Oceanographic and Atmospheric Administration (the parent agency for the
National Weather Service) maintains a nationwide network of radio stations broadcasting
continuous weather information direct from regional National Weather Service offices.
The NWS broadcasts warnings, watches, forecasts, Amber Alerts and other hazard and
safety information 24 hours a day. Post-event information is also
broadcast for natural hazards (such as tornados and earthquakes)
and environmental hazards (such as chemical releases or oil
spills).
These broadcasts can be received by any radio capable of
receiving the Weather Service frequency. NOAA All Hazard
Radios have the additional advantage of being activated by a prebroadcast signal transmitted by the NWS, coming off standby and sounding an alert tone
loud enough to wake sleeping individuals before transmitting the warning message.
NOAA Weather Radio receivers can be purchased at many retail stores that sell
electronic merchandise. Typical cost of a residential grade NOAA Weather Radio is
between $20 and $200.
For more information on NOAA Weather Radios, see http://www.nws.noaa.gov/nwr/.
B.5.2
Warning
After the threat recognition system tells the CEMA that a flood or other hazard is coming,
the next step is to notify the public and staff of other agencies and critical facilities. The
earlier and the more specific the warning, the greater the number of people who can
implement protection measures. The following are some of the more common warning
methods:
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Broadcast
announcements & EAS
Door-to-door
Notification
Other Communications
Devices
Outdoor warning sirens
NOAA Weather Radio
Sirens on public safety
vehicles
Good tools for delivering an alert to a wide coverage area but not wellsuited for delivering “actionable” information to specific population
segments. For an EAS to be effective, it is essential for the target
audience to be tuned in to a regional station. Actual practice shows
this is not always the case, particularly late at night when the general
population is asleep.
Door-to-door notification would be an ideal way to communicate with
specific individuals or neighborhoods. However, efficiency is impacted
by the number of addresses to be contacted, the number of personnel
available to “walk the streets”, and the amount of time available prior to
the event (i.e., evacuation). It is highly unlikely that sufficient public
safety personnel would be available to effectively provide such door-todoor notification services. Door-to-door also has the potential of putting
first responders in harm’s way.
There are many communication devices available that may be able to
receive emergency notifications – faxes, pagers, PDAs and cell
phones. However, as with Weather Alert Radio, their level of
penetration throughout the population is too low to ensure effective
delivery. Selecting distinct population segments based on geography
with such devices is also a problem.
Sirens can be effective in their ability to alert people within hearing
distance that a crisis or emergency situation may exist. Outdoor
warning sirens and public address systems are commonly located in
densely populated urban settings, but are not as useful in rural areas.
Sirens are intended to alert the public to implement some predetermined action (i.e., tune to radio and television for specific
information on a hazard). However the public generally has no
awareness of the need to do so and often will ignore sirens thinking
they are a “test” unless they see the hazard approaching, which is
often then too late to take appropriate action.
In addition, in many areas, sirens are used only for specific
emergencies, such as floods or tornadoes, and are of little use in
helping public safety personnel alert residents to other events/crises.
Weather Alert Radio, while an invaluable tool, has limited applicability.
Lacking proper feedback, public safety and emergency management
officials have no way of being sure that everyone in their jurisdiction
can be reached with such announcements because, similar to
broadcast announcements, the audience must have a NOAA radio,
and be tuned in.
These have many of the same drawbacks as both door-to-door
notification and outdoor warning sirens. Emergency vehicle sirens do
not provide “actionable” information on how to respond. In addition,
crucial emergency service personnel may be tied up when their
services are more urgently needed for response.
Adapted from NENA Minimum Standards for Emergency Telephone Notification Systems, NENA 56003, June 12, 2004
Multiple or redundant systems are the most effective, since people do not hear one
warning, they may still get the message from another part of the system. Each has
advantages and disadvantages. Outdoor warning sirens can reach the most people quickly
(except those around loud noise, such as at a factory or during a thunderstorm), but they
do not explain what hazard is coming and cannot be sounded unless a timely means of
threat recognition exists. Radio and TV provide a lot of information, but people have to
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know to turn them on. Telephone trees are fast, but can be expensive and do not work
when phones lines are down.
Just as important as issuing a warning is telling people what to do. A warning program
should have a public information aspect. People need to know the difference between a
tornado warning (when they should seek shelter in a basement) and a flood warning
(when they should stay out of basements).
B.5.3 9-1-1 and 2-1-1
Some communities have expanded their basic 9-1-1 location identification telephone
service to include features such as “enhanced 9-1-1” registering name, address, and a
description of the building/site. Additionally, non-emergency 2-1-1 service can be used to
have people call to get information, such as locations of cooling shelters during a heat
wave. For information on coverage areas and contact information for area 2-1-1 systems,
see www.211oklahoma.org. For Holdenville, 2-1-1 of Southeastern Oklahoma, out of
McAlester, at 580-332-0558 operates 2-1-1.
B.5.4
Emergency Telephone Notification Systems (ETNS)
It has become more common to use a “Emergency Telephone Notification System”
(frequently referred to as reverse 9-1-1) with which a community can send out a mass
telephone announcement to targeted numbers in the 9-1-1 system, effectively
supplementing a community’s other warning systems. An effective ETNS can offer
certain advantages over other systems:




ETNS systems provide the ability to precisely target populations in specific
geographic locations better than existing alternatives, particularly when ETNS
systems were integrated with geographic information systems (GIS) maps commonly
used by 9-1-1 systems;
The telephone, more than any other communications medium, allows officials to
deliver specific actionable information that lets those in harm’s way know exactly
what to do, what to expect, or what to look for;
The telephone is always on, providing the opportunity to reach nearly everyone in a
target area either live or through voicemail.
Many systems also offer the option of allowing people to call in and retrieve the same
message or an updated one. This can reduce the subsequent number of calls to 9-1-1
from people who did not fully understand the message the first time. (Source: NENA
Minimum Standards for Emergency Telephone Notification Systems, NENA 56-003,
June 12, 2004)
Holdenville is currently exploring the possibility of implementing a Community
Emergency Notification System.
B.5.5
Response
The protection of life and property is the foremost important task of emergency
responders. Concurrent with threat recognition and issuing warnings, a community
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should respond with actions that can prevent or reduce damage and injuries. Typical
actions and responding parties include the following:









Activating the emergency operations room (emergency management)
Closing streets or bridges (police or public works)
Shutting off power to threatened
areas (utility company)
Holding children at
school/releasing children from
school (school district)
Passing out sand and sandbags
(public works)
Ordering an evacuation (mayor)
Opening evacuation shelters
(Red Cross)
Monitoring water levels
(engineering)
Security and other protection
In the event of an emergency, responders must
measures (police)
make an organized effort to minimize the impacts
of the incident.
An emergency action plan ensures
that all bases are covered and that the response activities are appropriate for the expected
threat. These plans are developed in coordination with the agencies or offices that are
given various responsibilities.
Emergency response plans should be updated annually to keep contact names and
telephone numbers current and to make sure that supplies and equipment that will be
needed are still available. They should be critiqued and revised after disasters and
exercises to take advantage of the lessons learned and changing conditions. The end
result is a coordinated effort implemented by people who have experience working
together so that available resources will be used in the most efficient manner.
B.5.6
Emergency Operations Plan (EOP)
An EOP develops a comprehensive (multi-use) emergency management program which
seeks to mitigate the effects of a hazard, to prepare for measures to be taken which will
preserve life and minimize damage, to respond during emergencies and provide necessary
assistance and to establish a recovery system in order to return communities to their
normal state of affairs. The plan defines who does what, when, where and how in order to
mitigate, prepare for, respond to and recover from the effects of war, natural disasters,
technological accidents and other major incidents / hazards.
The State and Local Guide (SLG) 101: Guide for All-Hazard Emergency Operations
Planning is available from FEMA. The guide provides ideas and advice to state and local
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emergency managers in their efforts to develop and maintain an EOP. The guide can be
ordered directly from FEMA or downloaded from http://www.fema.gov/rrr/gaheop.shtm.
Funding for creating or updating an EOP is available from FEMA. For information on
how to obtain funding contact the Oklahoma Office of Homeland Security or go to
http://www.youroklahoma.com/homelandsecurity/.
The State of Oklahoma’s Emergency Operations Plan is published on
www.ok.gov/OEM/Programs_&_Services/Planning/State_Emergency_Operations_Plan_
(EOP)/.
The City of Holdenville and the Holdenville Public Schools District have completed the
process of coordinating the city's emergency response plans with the local school
district's emergency operations plan.
B.5.7 Incident Command System (ICS)
The Incident Command System is the model tool for the command, control and
coordination of resources at the scene of an emergency. It is a management tool of
procedures for organizing personnel, facilities, equipment and communications. ICS is
based upon basic management skills managers and leaders already know: planning,
directing, organizing, coordinating, communicating, delegating and evaluating.
Continuity of Operations (COOP) planning should be addressed in the EOP. COOP
ensures the essential functions of an organization, including government, can continue to
operate during and after an emergency incident. An incident may prevent access to
normally operating systems, such as physical plant, data or communication networks, or
transportation. Government, business, other organizations, and families should be
encouraged to prepare by regularly backing up computer drives, copying essential files,
and storing these items in a separate location.
ICS is not a means to wrestle control or authority away from agencies or departments, a
way to subvert the normal chain of command within a department or agency, nor is it
always managed by the fire department, too big for small everyday events or restricted to
use by government agencies and departments. ICS is an adaptable methodology suitable
for emergency management as well as many other categories. If leadership is essential for
the success of an event or a response, ICS is the supporting foundation for successfully
managing that event.
The Incident Command System is built around five major management activities. These
activities are:


Command – sets objects and priorities and has overall responsibility at the
incident or event.
Operations – conducts tactical operations to carry out the plan and directs
resources.
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

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Planning – develops the action plan to accomplish objectives and collects and
evaluates information.
Logistics – provides resources and services to support incident needs.
Finance / Administration – monitors costs, provides accounting, reports time and
cost analysis.
The system can grow or shrink to meet changing needs. This makes it very cost-effective
and efficient. The system can be applied to a wide variety of situations such as fires,
multi-jurisdiction and multi-agency disasters, hazardous material spills and recovery
incidents, pest eradication programs and state or local natural hazards management.
For a detailed description of ICS, a diagram of ICS organization, or checklists of duties
for each management activity and links to other resources see
http://www.911dispatch.com/ics/ics_main.html.
B.5.8 Mutual Aid / Interagency Agreements
Local governments should establish mutual aid agreements for utility and
communications systems, including 9-1-1. Mutual aid or interagency agreements have
value for preventing or responding to other hazard or emergency situations, as fire and
police departments often do.
B.5.9
CERT (Community Emergency Response Team)
After a major disaster, local emergency teams quickly become
overwhelmed. CERT is designed to have trained groups of
citizens in every neighborhood and business ready to assist first
responders (police, firefighters and EMSA) during an
emergency.
CERT programs train and equip citizens in neighborhoods and businesses enabling them
to “self-activate” immediately after a disaster. CERT teams are trained in:
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Disaster preparedness.
Light fire and suppression.
Light search and rescue.
Basic medical care.
FEMA grants have been given to states for funding CERT programs or expanding
existing teams. For information about the Oklahoma grant see
www.fema.gov/news/newsrelease.fema?id=3155.
For more information on the CERT program talk to your local emergency management
official or visit training.fema.gov/emiweb/CERT/.
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B.5.10 Debris Management
The tornados of May 3, 1999 left an estimated 500,000 cubic yards of debris. Debris in
the aftermath of a disaster poses significant health and safety risks. Debris can include
fuel containers, chemicals, appliances and explosives.
Two key considerations regarding debris management are the need for rapid removal and
protection of the public health and environment. Before a disaster strikes communities
should set up staging area(s) where citizens and cleanup crews can take debris prior to
final disposal.
Community members can participate in debris control by securing debris, yard items, or
stored objects that my otherwise be swept away, damaged, or pose a hazard if
floodwaters would pick them up and carry them away. Additionally, a community can
pass and enforce an ordinance regulating dumping.
For the Oklahoma Department of Environmental Quality’s Guidelines for Debris
Management see document
www.deq.state.ok.us/mainlinks/storms/Options%20for%20Disposal%20Guidelines.doc.
B.5.11 Critical Facilities Protection
“Critical facilities” are previously discussed in Section 2.3.5. Generally, they fall into
three categories:

Buildings or locations vital to the response and recovery effort, such as police and fire
stations and telephone exchanges;
 Buildings or locations that, if damaged, would create secondary disasters, such as
hazardous materials or utility facilities, or water treatment plants; and
 Locations that would require extraordinary response or preparedness measures, such
as hospitals, retirement homes, or childcare facilities.
In addition, since September 11th, FEMA has also included financial institutions as
critical facilities, because of the potential devastating effect on the community
infrastructure upon their loss.
Protecting critical facilities during a disaster is the responsibility of the facility owner or
operator. However, if they are not prepared for an emergency, the rest of the community
could be impacted. If a critical facility is damaged, workers and resources may be
unnecessarily drawn away from other disaster response efforts. If the owner or operator
adequately prepares such a facility, it will be better able to support the community's
emergency response efforts.
Most critical facilities have full-time professional managers or staff who are responsible
for the facility during a disaster. These people often have their own emergency response
plans. Many facilities would benefit from early disaster warning, disaster response
planning, and coordination with community disaster response efforts.
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Schools are critical facilities not only because of the special population they
accommodate, but because they are often identified as shelter sites for a community.
Processes and procedures can be developed to determine mitigation priorities
incorporated into capital improvement plans that will ensure these buildings function
after an event.
Holdenville has taken the steps to ensure that there are adequate backup facilities for the
Emergency Operations Center and has a rerouting system in place for the 9-1-1 dispatch
center at the Holdenville Police Department.
B.5.12 Site Emergency Plans
Communities can encourage development and testing of internal emergency plans and
procedures, including continuity planning, by businesses and other organizations.
Communities should develop and test site emergency plans for schools, factories, office
buildings, shopping malls, hospitals, correctional facilities, stadiums, recreation areas,
and other similar facilities.
B.5.13 Post-Disaster Recovery and Mitigation
After a disaster, communities should undertake activities to protect public health and
safety, facilitate recovery, and help people and property for the next disaster. Throughout
the recovery phase, everyone wants to get “back to normal.” The problem is, “normal”
means the way they were before the disaster. Measures needed include the following:
Recovery Actions
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Patrolling evacuated areas to prevent looting
Providing safe drinking water
Monitoring for diseases
Vaccinating residents for tetanus
Clearing streets
Cleaning up debris and garbage
Regulating reconstruction to ensure that it meets
all code requirements, including the NFIP’s
substantial damage regulations
Mitigation Actions

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
Conducting a public information effort to advise
residents about mitigation measures they can
incorporate into their reconstruction work
Evaluating damaged public facilities to identify
mitigation measures that can be included during
repairs
Acquiring substantially or repeatedly damaged
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A firefighter searches through the
remains of a hotel in Midwest City.
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

properties from willing sellers
Planning for long term mitigation activities
Applying for post-disaster mitigation funds
Requiring permits, conducting inspections, and enforcing the NFIP substantial
improvement/substantial damage regulations can be very difficult for local, understaffed
overworked offices after a disaster. If these activities are not carried out properly, not
only does the municipality miss a tremendous opportunity to redevelop or clear out a
hazardous area, it may be violating its obligations under the NFIP.
B.5.14 StormReady Communities
StormReady, a program started in Oklahoma in 1999,
helps arm America's communities with the communication
and safety skills needed to save lives and property before
and during an event. StormReady communities are better
prepared to save lives from the onslaught of severe weather through better planning,
education, and awareness.
StormReady has different guidelines for different sized communities. To be StormReady
a community must:
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

Establish a 24-hour warning point and emergency operations center.
Have more than one way to receive severe weather warnings and forecasts and to
alert the public.
Create a system that monitors weather conditions locally.
Promote the importance of public readiness through community seminars.
Develop a formal hazardous weather plan, which includes training severe weather
spotters and holding emergency exercises.
The economic investment in StormReady will depend on current assets. There is currently
no grant funding for becoming StormReady. However, the Insurance Services
Organization (ISO) may provide community rating points to StormReady communities.
Those points may be applied toward lowering flood insurance rates.
For details on how to become StormReady and the requirements based on community
size see http://www.stormready.noaa.gov/. Holdenville has been certified as a
StormReady Community since August 2005.
B.5.15 Conclusions
1. Using solid, dependable threat recognition systems is first and foremost in emergency
services.
2. Following a threat recognition, multiple or redundant warning systems and
instructions for action are most effective in protecting citizens.
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3. Good emergency response plans that are updated yearly ensure that well-trained and
experienced people can quickly take the appropriate measures to protect citizens and
property.
4. To ensure effective emergency response, critical facilities protection must be part of
the plan.
5. Post-disaster recovery activities include providing neighborhood security, safe
drinking water, appropriate vaccinations, and cleanup and regulated reconstruction.
B.5.16 Recommendations
Refer to Chapter 6: Action Plan and Mitigation Measures, Table 6–1, for a complete
listing of all recommended mitigation measures by hazard and priority.
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B.6 Natural Resource Protection
Natural resource protection activities are generally aimed at preserving and restoring the
natural and beneficial uses of natural areas. In doing so, these activities enable the
beneficial functions of floodplains and drainageways to be better realized. These natural
functions include:
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Storage of floodwaters
Absorption of flood energy
Reduction of flood scour
Infiltration and aquifer/groundwater
recharge
Removal/filtration of excess
nutrients, pollutants, and sediments
from floodwaters
Habitat for flora and fauna
Recreation and aesthetic
opportunities, and
Opportunities for off-street hiking
and biking trails
Wetlands are a valued resource to ecosystems
and should be protected.
This Section reviews natural resource protection activities that protect natural areas and
mitigate damage from other hazards. Integrating these activities into the hazards
mitigation program will not only reduce the City’s susceptibility to flood damage, but
will also improve the overall environment.
B.6.1
Wetland Protection
Wetlands are often found in floodplains and depressional areas of a watershed. Many
wetlands receive and store floodwaters, thus slowing and reducing downstream flows.
They also serve as a natural filter, which helps to improve water quality, and provide
habitat for many species of fish, wildlife, and
plants.
Wetlands
Wetlands are regulated by the U.S. Army Corps
 Store large amounts of
of Engineers and the U.S. Environmental
floodwaters
Protection Agency under Section 404 of the
Clean Water Act. Before a “404” permit is
 Reduce flood velocities and
issued, the plans are reviewed by several
erosion
agencies, including the Corps and the U.S. Fish
 Filter water, making it cleaner
and Wildlife Service. Each of these agencies
for those downstream
must sign off on individual permits. There are
 Provide habitat for species that
also nationwide permits that allow small projects
cannot live or breed anywhere
else
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that meet certain criteria to proceed without individual permits.
B.6.2
Erosion and Sedimentation Control
Farmlands and construction sites typically contain large areas of bare exposed soil.
Surface water runoff can erode soil from these sites, sending sediment into downstream
waterways. Sediment tends to settle where the river slows down and loses power, such as
when it enters a lake or a wetland.
Sedimentation will gradually fill in channels
and lakes, reducing their ability to carry or
store floodwaters. When channels are
constricted and flooding cannot deposit
sediment in the bottomlands, even more is
left in the channels. The result is either
clogged streams or increased dredging costs.
Not only are the drainage channels less able
to do their job, but also the sediment in the
water reduces light, oxygen, and water
quality and often brings chemicals, heavy
metals and other pollutants. Sediment has
been identified as the nation’s number one
nonpoint source pollutant for aquatic life.
Construction projects, which can expose
large areas to erosion, should be closely
monitored.
Practices to reduce erosion and sedimentation have two principal components:
1. Minimize erosion with vegetation and
2. Capture sediment before it leaves the site.
Slowing surface water runoff on the way to a
drainage channel increases infiltration into the
soil and reduces the volume of topsoil eroded
from the site. Runoff can be slowed down by
measures such as terraces, contour strip
farming, no-till farm practices, sediment
fences, hay or straw bales (as illustrated),
constructed wetlands, and impoundments
(e.g., sediment basins and farm ponds).
Erosion and sedimentation control regulations
Lack of vegetation along drainage channels
mandate that these types of practices be
promotes erosion
incorporated into construction plans. They are
usually oriented toward construction sites rather than farms. The most common approach
is to require applicants for permits to submit an erosion and sediment control plan for the
construction project. This allows the applicant to determine the best practices for the site.
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One tried and true approach is to have the contractor design the detention basins with
extra capacity. They are built first, so they detain runoff during construction and act as
sediment catch basins. The extra capacity collects the sediment that comes with the
runoff until the site is planted and erosion is reduced.
B.6.3
River Restoration
There is a growing movement that has several names, such as “stream conservation,”
“bioengineering” or “riparian corridor restoration.” The objective of these approaches is
to return streams, stream banks and adjacent land to a more natural condition, including
the natural meanders. Another term is “ecological restoration” which restores native
indigenous plants and animals to an area.
A key component of these efforts is using
appropriate native plantings along the
banks that resist erosion. This may involve
“retrofitting” the shoreline with willow
cuttings, wetland plants, and/or rolls of
landscape material covered with a natural
fabric that decomposes after the banks are
stabilized with plant roots.
Studies have shown that after establishing
the right vegetation, long-term
maintenance costs are lower than if the
Retrofitting streambanks with willow cuttings
banks were concrete. The Natural
and geotextiles can be more cost effective than
riprap or concrete-lined floodways.
Resources Conservation Service estimates
that over a ten-year period, the combined
costs of installation and maintenance of a natural landscape may be one-fifth of the cost
for conventional landscape maintenance, e.g., mowing turf grass.
B.6.4
Best Management Practices
Point source pollutants come from pipes such as the outfall of a municipal wastewater
treatment plant. State and federal water quality laws have reduced the pollutants that
come from these facilities.
Non-point source pollutants come from non-specific locations and are harder to regulate.
Examples are lawn fertilizers, pesticides, and other farm chemicals, animal wastes, oils
from street surfaces and industrial areas, and sediment from agriculture, construction,
mining and forestry. These pollutants are washed off the ground’s surface by stormwater
and flushed into receiving storm sewers, ditches and streams.
Best management practices (BMPs) are measures that reduce nonpoint source pollutants
that enter the waterways. BMPs can be implemented during construction and as part of a
project’s design to permanently address nonpoint source pollutants.
There are three general categories of BMPs:
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1. Avoidance—Setting construction projects back from the stream.
2. Reduction—Preventing runoff that conveys sediment and other water-borne
pollutants, such as planting proper vegetation and conservation tillage.
3. Cleansing—Stopping pollutants after they are en route to a stream, such as using
grass drainageways that filter the water and retention and detention basins that let
pollutants settle to the bottom before they are drained.
In addition to improving water quality, BMPs can have flood related benefits. By
managing runoff, they can attenuate flows and reduce the peaks after a storm. Combining
water quality and water quantity measures can result in more efficient multi-purpose
stormwater facilities.
Because of the need to clean up our rivers and lakes, there are several laws mandating the
use of best management practices for new developments and various land uses. The
furthest reaching one is the U.S. Environmental Protection Agency’s National Pollutant
Discharge Elimination System (NPDES) requirements.
B.6.5
Dumping Regulations
NPDES addresses liquid pollutants. Dumping regulations address solid matter, such as
shopping carts, appliances and landscape waste that can be accidentally or intentionally
thrown into channels or wetlands. Such materials may not pollute the water, but they can
obstruct even low flows and reduce the channels’ and wetlands’ ability to convey or clean
stormwater.
Many cities have nuisance ordinances that prohibit dumping garbage or other
“objectionable waste” on public or private property. Waterway dumping regulations need
to also apply to “non-objectionable” materials, such as grass clippings or tree branches,
which can kill ground cover or cause obstructions in channels.
Many people do not realize the consequences of their actions. They may, for example, fill
in the ditch in their front yard not realizing that it is needed to drain street runoff. They
may not understand how regrading their yard, filling a wetland, or discarding leaves or
branches in a watercourse can cause a problem to themselves and others. Therefore, a
dumping enforcement program should include public information materials that explain
the reasons for the rules as well as the penalties.
Regular inspections to catch violations also should be scheduled. Finding dumped
materials is easy; locating the source of the refuse is hard. Usually the owner of property
adjacent to a stream is responsible for keeping the stream clean. This may not be fair for
sites near bridges and other public access points.
B.6.6
Conclusions
1. Wetlands play an important role in natural course of flood control, preservation of
water quality, and wildlife habitation, making a strong case for their protection.
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2. Erosion can be reduced by use of vegetation. Sedimentation should be captured
before it leaves its original location with oversized detention basins.
3. Vegetation used along riverbanks works more effectively in river maintenance than
using banks made of concrete.
4. Nonpoint source pollutants are best managed by keeping construction projects away
from streams, reducing sediment runoff, and using grass drainageways and detention
basins for filtration.
6. Dumping regulations need to be communicated to the public and enforced.
7. The establishment and maintenance of wildlife habitat and natural ecosystems should be
an important aspect of any drainage system program the City may implement in regards
to floodplain management. This can be developed in cooperation with the Oklahoma
Department of Wildlife Conservation, allowing aquatic plants and wildlife to be
established in stormwater detention ponds and floodways.
B.6.7
Recommendations
Refer to Chapter 6: Action Plan and Mitigation Measures, Table 6–1, for a complete
listing of all recommended mitigation measures by hazard and priority.
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